CIHM 
Microfiche 
Series 
(■Monographs) 


ICIMH 

Collection  de 
microfiches 
(monographies) 


C.nadi.n  Institut.  for  Hi.torie.1  Mieror.productlon.  /  In.titut  can.di«n  d«  mlcror.productlons  hi.torique. 


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Technical  and  Bibliographic  Notes  /  Notes  techniques  et  bibliographiques 


The  Institute  has  attempted  to  obtain  the  best  original 
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nnay  be  bibliographically  unique,  which  may  alter  any  of 
the  images  in  the  reproduction,  or  which  may 
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Couverture  de  couleur 


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□   Covers  restored  and/or  laminated  / 
Couverture  restaur^e  et/ou  pellicul^e 

Cover  title  missing  /  Le  titre  de  couverture  manque 

I Coloured  maps  /  Cartes  g6ographiques  en  couleur 

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intdrieure. 

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plaire qui  sont  peut-6tre  uniques  du  point  de  vue  bibli- 
ographique,  qui  peuvent  nfK>difier  une  image  reproduite, 
ou  qui  peuvent  exiger  une  modification  dans  la  m^tho- 
de  normale  de  filmage  sont  indiqu^s  ci-dessous. 

I     I  Coloured  pages  /  Pages  de  couleur 

j I   Pages  damaged  /  Pages  endommag«les 


D 


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\y\   Pages  detached  /  Pages  d6tach6es 

I  v/|   Showthrough  /  Transparence 

I      I   Quality  of  print  varies  / 


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["71   Additional  comments  / 


Commentaires  suppl^mentaires: 


Part  of  covsr  afssing. 


Quality  in^gale  de  I'impression 

Includes  supplementary  material  / 
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obtenir  la  meilleure  image  possible. 

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film^es  deux  fois  afin  d'obtenir  la  meilleure  image 
possible. 


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Ca  document  est  liime  au  lauM  d«  liduci.on  indlqui  ci-d«ttou*. 


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to  tha  ganarosity  of: 

National  Library  of  Canada 


L'axamplaira  filmi  fut  raproduit  grica  A  la 
g*n«rositi  da: 

Bibliotheque  nationale  du  Canada 


Tha  imagas  appaaring  hara  ara  tha  bast  quality 
possibia  considaring  tha  condition  and  lagibility 
of  tha  original  copy  and  in  kaaping  with  tha 
filming  contract  spacificationa. 


Original  copias  in  printad  papar  covars  ara  fllmad 
baginning  with  tha  front  covar  and  anding  on 
tha  last  paga  with  a  printad  or  illuatratad  impraa- 
sion,  or  tha  back  covar  whan  appropriata.  All 
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first  paga  with  a  printad  or  illuatratad  impraa- 
sion,  and  anding  on  tha  laat  paga  with  a  printad 
or  illuatratad  impraaaion. 


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shall  contain  tha  symbol  — »>  (maaning  "CON- 
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whichavar  appiias. 

Mapa.  piatas.  charts,  ate.  may  ba  filmad  at 
diffarant  raduction  ratios.  Thosa  too  larga  to  ba 
antiraly  includad  in  ona  axposura  ara  filmad 
baginning  in  tha  uppar  laft  hand  cornar,  laft  to 
right  and  top  to  bottom,  as  many  framas  as 
raquirad.  Tha  following  diagrams  illustrata  tha 
mathod: 


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da  la  nattat4  da  l'axamplaira  film*,  at  an 
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par  la  pramiar  plat  at  an  tarminant  soit  par  la 
darni«ra  paga  qui  conr.porta  una  amprainte 
d'imprassion  ou  d'illustration,  soit  par  la  second 
plat,  salon  la  cas.  Tous  las  autras  axamplairas 
originaux  sont  film«s  mn  commanpant  par  la 
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la  darniira  paga  qui  comporta  una  talla 
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symbols  ▼  signifia  "FIN". 

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Carnegie  Endowment  for  International  Peace 


DIVISION  OF  ECONOMICS  AND  HISTORY 

JOHN  BATES  CLAKK,  DIRECTOR 


PRELIMINARY  ECONOMIC  STUDIES  OF  THE  WAR 


EDITED  BY 


DAVID    KINLEY 


Profeilor  of  Political  Economy,  University  of  lllinoit 
Member  of  Committee  of  Research  of  the  Endowment 


No.  8 


BRITISH  WAR  ADMINISTRATION 


BY 


JOHN  A.   FAIRLIE 

Professor  of  Political  Science,  University  of  Illinois 


NEW  YORK 

OXFORD  UNIVERSITY  PRESS 

AMERICAN  BRANCH:  35  Wht  32i<d  Sitiii 
LONDON,  TORONTO,  MELBOURNE,  AND  BOMBAY 

1919 


lOi'VRuwrr  \w.i 

BY    THE 

CARNEGIE  ENDOWMENT  1-OK  INTERNATIONAL  I'KACi: 
-■  Jackson  Place,  U  ashingion.  I)   I 


EDITOR'S  PREFACE 

This  study  of  British  War  Administration  by  Professor  Fairlie 
is  one  of  a  series  of  war  studies  organized  by  the  Carnegie 
Endowment  for  International  Peace  to  lay  a  preliminary  basis 
for  future  more  thorough  study  of  the  effects  of  the  war  on 
economic  and  social  life.     It  is  hoped  at  some  later  time,  after 
the  distractions  of  the  war  are  over,  and  the  lives  of  men  have 
returned  to  normal  conditions,  that  we  shall  be  able  to  measure 
more  exactly  and  estimate  more  carefully  the  changes  induced  by 
the  war  in  the  administration  of  governments,  and  particularly 
the  extent  to  which  these  changes  are  likely  to  be  permanent.    A 
superficial  view  and  a  hasty  judgment  would  indicate  that  the 
world  has  taken  great  strides  in  the  direction  of  state  socialism. 
It  is  not  surprising  that  the  demand  of  the  socialists   fur  an 
extension  of  government  activities  in  the  sphere  of  economic  life 
should  be  strengthened  in  war  time  by  the  added  call  of  a  large 
number  of  people  who  are  impressed  with  the  apparent  efficiency 
of  the  management  by  government  departments  of  certain  indus- 
tries for  the  purposes  of  the  war.    These  new  advocates  of  state 
socialism  arc  not  to  be  classed  with  what  we  mav  call  professional 
socialists,  but  rather  jjelong  to  that  large  class' of  the  American 
people,  to  be  found  in  a  considerable  number  in  any  intelligent 
democracy,  who  are  overimpressed  with  the  temi)orary  success 
of  a  new  political  or  social  experiment  carried  on  under  pretty 
definite  conditions,  with  pretty  definite  ends  in  view.     They  for- 
get that  the  economic  and  social  life  of  the  people  is  vastly  more 
complex  and  difficult  t(j  adjust  in  normal  times  of  peace  activity 
than  It  IS  in  time  of  war,  wiien  many  of  the  ordinary  industrial 
and  commercial  activities  of  the  world  are  much  reduced  in  scope 
and   limited   in  number.      Such   people  are   impressed   with   the 
splendid  success  which  the  British  (Government  has  had  in  many 
of  its  wartime  administrative  expedients  and  organizations. 


IV 


EDITOR  S   PREFACE 


They  forget  that  while  many  of  the  demands  of  economic  life 
in  normal  peace  conditions  have  disappeared  or  have  been  much 
curtailed  and  that  while  many  of  the  administrative  devices  and 
organizations  necessary  to  conduct  these  have  also  disappeared 
or  have  been  greatly  modified  under  the  stress  of  the  war,  they 
will  have  to  be  restored  alter  the  war,  unless  in  the  succeeding 
period  of  peace  we  are  to  \x  content  with  a  narrower  economic 
life  conducted  under  war  methods  of  organiz,.    on. 

There  is  no  doubt  that  the  world  has  not  yet  found  a  scientific 
solution  of  the  problem  of  the  line  of  division  between  private 
and  public  enterprise.  Each  method  has  its  evils.  In  a  democracy 
the  possible  evils  of  public  enterprise  in  industry  and  trade  are 
numerous  and  great.  There  seems  to  be  an  inherent  conflict 
between  democracy  and  what  is  called  efficiency  that  does  not 
obtain  in  an  autocratic  form  of  government,  assuming,  of  course, 
that  both  governments  are  honest.  Therefore,  when  the  people 
of  a  democracy  find  it  necessary  to  act  as  a  unit  and  so  to  lay 
aside  for  a  time  and  for  some  definite  purpose  their  manifold 
and  multitudinous  kinds  of  activity  in  order  to  achieve  a  single 
end,  they  find  it  necessary  to  adopt,  in  appearance  at  any  rate, 
the  methods  of  autocracy.  That  is  to  say,  they  consolidate  and 
centralize  administrative  authoiity — a  consolidation  and  concen- 
tration which  exists  in  ordinary  times  in  an  autocracy.  But  such 
concentration  in  a  democracy  is  a  result  of  the  choice  of  the 
people  and,  if  the  democracy  survives,  can  be  only  temporary.  In 
an  autocracy  sur*-  concentration  is  imposed  upon  the  people  and 
is  not  abandoned  at  the  end  of  the  crisis. 

Some  such  experiencs  the  democracies  of  Great  Britain  and  the 
United  States  are  passing  through.  They  have  abandoned  the 
ordinary  rights,  privileges  and  prerogatives  of  individual  citizen- 
ship for  a  time  in  order  to  achieve  a  great  purpose,  the  failure  of 
which  would  make  impossible  in  the  future  the  pursuit  of  these 
rights,  privileges  and  preroj^atives.  It  may  be  th?t  as  a  result  of 
this  experience  we  shall  reach  the  conclusion  that  some  of  these 
rights,  privileges  and  prerogatives  of  the  individual  citizen  can  be 
more  surely  perpetuated  by  a  readjustment  of  the  economic  ac- 
tivities of  individuals  on  one  side,  and  of  the  community  at  large, 


EDITOR  S  PREFACE 


through  gcvernment  agencies,  on  the  other.  That  is  to  say,  we 
may  conclude,  as  a  result  of  our  war  administration,  to  operate 
through  government  agencies  some  industries  that  have  hereto- 
fore been  wholly  individualistic  in  their  management.  We  will  do 
that  only  if  we  are  convinced  that  such  an  extension  of  govern- 
mental activity  will  conserve  the  political  freedom  which  we  have 
inherited  from  our  fathers,  which  is,  after  all,  of  first  importance, 
while  at  the  same  time  adding  something  tc  the  economic  pros- 
perity of  individuals,  or  diversifying  more  richly  the  economic 
life  of  the  individual  citizen. 

But  such  a  condition  will  be  far  from  state  socialism.  Those 
who  clamor  most  loudly  fo"-  governmental  action  in  the  economic 
sphere  seem  to  forget  that  after  all  the  only  important  element  in 
society,  so  far  as  concerns  the  enjoyment  of  prosperity  and  wel- 
fare, is  the  individual.  There  is  no  such  thing  as  a  mo'-e  pro:- 
perous  community  excepting  in  the  sense  of  a  community  of  more 
prosperous  individuals ;  and  there  is  no  way  of  securing  a  more 
prosperous  community  except  by  making  individuals  more  pros- 
perous. This  does  not  mean  that  all  individuals  in  a  community 
need  to  become  economically  better  off.  The  improvement  may 
result  as  well  from  improved  distribution  as  from  improved  pro- 
duction. In  short,  government  action  is  not  a  ♦alisman  for 
greater  prosperity.  If  we  were  to  adopt  it  on  a  wholesale  scale 
it  would  soon  show,  outside  of  certain  very  limited  spheres, 
weaknesses  far  greater  than  any  that  have  developed  in  an  indi- 
vidualistic system.  The  people  of  Great  Britain  and  of  the 
United  States  need  to  proceed  with  caution  in  making  perma- 
nent, or  in  permitting  to  continue  foi  too  long  a  time,  any  of 
the  important  extensions  of  government  administration  into  the 
economic  sphere  which  have  been  made  because  of  the  necessities 
of  the  war.  Especially  should  the  people  of  the  United  States 
be  on  their  guard  against  the  continuance  of  the  far-reaching 
extension  of  the  activities  of  the  federal  government  and  its 
many  bureaus. 

Professor  Fairlie's  study  was  made,  of  course,  principally  for 
the  purpose  of  making  a  historical  record  of  the  facts  in  the  case, 
and  he  has  limited  his  inquiry  principally  to  the  agencies  of  the 


VI 


EDITOR  S   PREFACE 


central  government.  He  has  kept  off  the  dangerous  ground  of 
speculation  and  inference.  The  story,  however,  is  full  of  lessons 
for  the  student  of  administration,  and  for  the  ordinary  citizen 
who  is  jealous  of  his  freedom.  He  may  willingly  put  up  for  a 
period  with  the  deprivation  of  his  ordinary  rights.  To  put  up 
with  such  a  condition  permanently  would  be  to  surrender  in  the 
long  run  the  very  things  for  which  he  is  fighting  in  this  war. 

The  reader  will  be  struck  with  the  efficiency  with  which  on  the 
whole  the  British  people  have  organized  themselves  for  war.  The 
story  is  certainly  a  fine  tribute  to  the  adaptability  of  British  talent 
and  character.  There  have  been  many  mistakes,  as  was  to  be 
expected.  There  have  been  many  grumblings  and  some  insubor- 
dination, but  on  the  whole  the  record  is  one  of  the  acceptance 
of  high  ideals  and  the  organization  of  excellent  administrative 
machinery  to  attain  them  with  a  regard  for  efficiency  in  operation 
that  far  surpasses  anything  that  could  have  been  expected.  The 
agencies  of  the  British  war  administration  have  reached  into 
every  lin*;  of  the  life  of  the  individual  of  the  British  Isles.  They 
have  been  welcomed  or  acquiesced  in  by  the  great  majority  of 
the  people  as  necessary  to  win  the  war.  Hardships  have  been 
endured  and  sufferings  undergone  for  this  great  purpose  in  a 
spirit  that  commands  the  admiration  of  the  world.  The  people 
of  the  United  States  have  followed  largely  in  their  footsteps  in 
the  matter  of  war  organization  and  administration.  Some  things 
in  our  administration  are.  of  course,  peculiar  to  ourselves,  but 
the  readiness  with  which  our  people  have  acquiesced  in  the 
measures  which  the  government  regards  as  necessary  to  obtain 
our  great  purpose  e(|uals  and  perhaps,  indeed,  surpasses,  that 
which  has  ])een  shown  b)  the  people  of  Britain  herself.  What- 
ever c\y  the  future  may  have  in  store,  we  have  good  assurance 
that  tilt  democracies  of  .America,  France  and  Great  Britain  will 
not  permit  the  destruction  of  individual  freedom,  individual 
initiative  and  progress  through  individual  action  for  the  sake 
of  a  fanci*^i;l  i(.lea  that  there  is  such  a  thing  as  community  life 
that  needs  to  be  promoted  apart  from  the  lives  of  the  individuals 
composing  it.  On  tiie  other  hand,  we  may  feci  sure  also  that 
the  experiences  of  the  war,  the  closeness  into  which  classes  of 


EDITOR  S   PREFACE 


Vll 


society  hitherto  almost  strangers  to  one  another  have  been 
brought  by  the  war,  the  general  spread  of  a  better  understanding 
among  these  classes  and  the  realization  in  all  of  them  that  the 
ideals  and  aspirations  of  them  all  are  substantially  the  same, 
will  go  far  to  establish  that  real  communal  democracy  of  spirit 
and  service  and  sacrifice  which  will  prevent  exploitation  of  indi- 
viduals and  of  the  welfare  and  prosperity  of  the  majority.  Such 
extension  of  governmental  administration  as  may  be  necessary 
for  this  purpose  we  will  all  gladly  acquiesce  in.  To  extend  such 
administration  beyond  this  point  would  be  to  destroy  liberty. 


David  Kin  ley. 


University  of  Illinois. 


FOREWORD 

This  report  aims  to  present  a  systematic  and  somewhat  com- 
prehensive account  of  the  manifold  changes  in  the  machinery  of 
governmental  administration  in  the  United  Kingdom  of  Great 
Britain  and  Ireland  which  have  been  made  during  and  as  a 
result  of  the  war.  The'extent  of  the  report  gives  some  indica- 
tion of  the  great  variety  and  number  of  special  agencies  brought 
into  existence;  and  it  is  hoped  that  the  arrangement  and  treat- 
ment of  tne  data  will  help  to  explain  the  relations  of  different 
agencies  to  each  other,  to  show  to  some  e\  ent  their  relative  im- 
portance, and  to  emphasize  some  of  the  more  significant  and 
fundamental  alterations  in  the  British  Government. 

It  should,  however,  be  clearly  understood  that  the  report 
presents  only  a  preliminary  survey,  and  by  no  means  gives  an  ex- 
haustive account  of  the  subject.  Soii,e  of  the  limitations  may 
be  briefly  noted.  Only  the  governmental  agencies  in  the  United 
Kingdom  have  been  included;  and  while  some  of  these  deal 
with  imperial  affairs  outside  of  the  British  Isles,  the  study  does 
not  include  the  governmental  war  agencies  of  the  British  Do- 
minions and  posse;,sions  beyond  the  seas.  Within  the  United 
Kingdom,  the  study  is  limited  in  the  main  to  agercies  of  the 
central  government ;  and  does  not  cover  the  details  of  local  or- 
ganization and  local  agencies. 

In  dealing  with  the  agencies  included,  considerable  variation 
will  be  found  in  tiie  treatment  given  to  different  bodies.  Most 
attention  has  been  given  to  the  more  important  authorities ;  but 
the  treatment  of  many  agencies  has  been  affected  by  the  material 
available.  In  a  good  many  cases  no  printed  documents  appear 
to  have  been  issued ;  and  no  doubt  some  of  tho  •:  issued  have  not 
come  to  this  country. 

The  scope  oi  the  report  is  confined  to  the  organization  of  ad- 
ministrative agencies;  and  while  some  account  of  work  pccom- 


FOREWORD 


plished  is  given,  there  is  no  attempt  to  cover  the  activities  of  the 
governmental  agencies  in  detail,  as  this  would  involve  duplicat- 
ing the  other  monographs  in  this  series. 

Much  of  the  data  has  been  taken  from  the  official  publications 
of  the  British  Government ;  and  the  resources  of  the  Library  of 
Congress,  the  New  York  Public  Library  and  the  John  Crerar 
Library  in  Chicago  have  been  used  to  supplement  each  other. 
But  considerable  use  has  also  been  made  of  data  from  reliable 
secondary  sources,  which  have  filled  gaps  in  the  official  publica- 
tions. 

It  is  believed  that  this  report  covers  the  ground  with  a  fair 
degree  of  completeness  to  the  end  of  the  year  1017.  Data  of 
later  date  have  also  been  used  where  possible;  but  both  official 
documents  and  secondary  sources  since  the  beginning  of  1918 
have  been  lacking  in  many  cases. 


CONTENTS 

CHAl'TER  PAGE 

I  War  Measures  in  Former  Times 3 

II  Forms  and  Agencies  of  Action  15 

III  The  Cabinet 31 

IV  Naval  Administration    59 

\'           Army   Administration    76 

VI         Munitions  and  Aircraft   98 

\TI       Defense  of  the  Realm   120 

VIII  War   Relief,    Pensions  and    Prisoners    146 

IX  Trade  and  Transportation    165 

X  Agriculture  and  Food  Control   197 

XI  Financial  Administration    218 

XII  Other  Departments   _>^7 

Appendix    271 

Index    297 


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BRITISH  WAR  ADMINISTRATION 


■v:i*-i";ii 


K^T^^^E^ 


CHAPTER  I 

War  Measures  in  Former  Times 

As  a  background  for  the  study  of  methods  of  war  legislation 
and  administration  in  the  present  world  conflict,  a  brief  survey 
may  be  made  of  the  measures  and  methods  of  the  English  and 
British  (iovernment  in  earlier  wars.  Xo  attempt  will  be  made 
at  a  comprehensive  account  of  all  the  wars  in  which  England 
has  been  engaged,  nor  to  cover  completely  even  the  periods  se- 
lected. But  a  sketch  will  be  given  showing  the  main  lines  of 
legislative  and  administrative  action  in  some  of  the  more  im- 
portant contests.  For  this  purpose  there  have  been  selected  the 
war  with  Spain  in  the  reign  of  Queen  l-:iizabetli,  and  three  wars 
with  France,  at  the  end  of  the  seventeenth  and  the  miildle  and 
end  of  the  eighteenth  centuries.  These  will  illustrate  the  broad 
lines  of  administrative  development,  and  will  furnish  a  basis  for 
a  comparison  and  contrast  of  present  day  methods. 


Eliz.\b;:tii.^n  War  Ad.ministr.atio.v  ' 

At  the  time  of  the  danger  from  the  Spanish  Armada  in  the 
reign  of  Queen  Elizabeth  the  conduct  of  the  defense  of  the 
kingdom  was  exercised  directly  and  mainly  by  the  Privv  Council. 
This  Ixxly  acted  almost  entirely  under  the  authoritv  of  its  com- 
mon law  powers  and  earlier  statutes;  and  the  only  important 
Acts  of  Parliament  passed  relating  to  the  war  were  those  mak- 
ing grants  of  taxation.  .Acts  providing  for  subsidies  and 
fifteenths  and  tenths  were  passed  in  the  sessions  oi  l."iS  !-,->, 
ir>>(;-7  and  l.')ss-!i.-  Assessments  for  these  taxes  were  made 
by  commissioners  for  the  shires  and  l)nr.uiglis.  appointed  bv  the 
Lord  Chancellor,  Lord  Keeper.  L(jrd  Treasurer.  Lord  Steward, 

;  The  rimes  History  „n,l  I^iicvrlrf.'dut  of  llio  i(  ,jr,  viii,  ch.   1_'4    nn   4'  4S 


'Statutes  of  till-  h'i-iilw.  iv  :  27  I'M/,  c 
ch.  14,  15. 


2S.  2'J:  29  EVn.  cli. 


31   Eli 


4  BRITISH    WAR   ADMINISTRATION 

Lord  Admiral  and  Lord  Chamberlain;  and  collectors  were  ap- 
pointed by  members  of  Parliament,  or  in  default  by  the  Lord 
Chancellor.  An  earlier  statute  for  the  encouragement  of  the 
fishing  industry  as  a  means  for  developing  the  navy  was  con- 
tinued.' After  the  crisis  several  Acts  of  Parliament  were  passed 
dealmg  with  conditions  resulting  from  the  war.  Thus  an  act 
of  158t»  made  the  embezzlement  of  military  stores  a  felony,  and 
acts  of  irm  and  1507  provided  for  parish  rates  to  be  levied  for 
the  relief  of  maimed  soldiers  and  mariners.  The  well  known 
Elizabethan  Poor  Law  of  ICOl  also  provided  special  measures 
for  the  relief  of  soldiers  and  mariners. 

In  contrast  with  the  slight  amount  of  parliamentarv  legisla- 
tion, the  records  of  the  Privy  Council  of  the  time  show  this 
body  meeting  at  intervals  of  a  few  davs  and  taking  decisive 
measures  for  dealing  with  the  situation,  not  only  by  general 
regulations,  but  also  by  specific  orders  and  instructions  to  both 
central  and  local  officials  and  other  individuals.    The  records  of 
the  years  n^G  to  1.588  show  a  total  of  some  twenty  persons  at- 
tend);ig  the   Council   meetings  at   one  time   or   another.      Bu* 
some  of  these  attended  only  occasionally,  and  the  usual  at- 
tendance was  from  eight  to  ten.     Those  most  often  present  in- 
cluded Lord  Burghley.  Lord  High  Treasurer;  Sir  Christopher 
Hatton.  Lord  Chancellor;  Lord  Hunsdon.  Lord  Chamberlain- 
Sir  Thomas  Heneage.  Vice  Chamberlain;  Sir  Francis  Knolhs' 
ireasurer  of  the  Household;  Sir  Francis  Walsingham,  Princi- 
pal Secretary  of  State,  and  John  Wolley,  Latin  Secretary  to  the 
Queen.     Less  regular  were  the  Archbishop  of  Canterbury    the 
Controller  of  the  Household,  the  Lord  High  Admiral   (Lord 
Howard  of  Effingham)  and  the  Lord  Steward.     A  few  other 
officials  and  prominent  noblemen  attended  occasionally 

Beginning  early  in  i:>ti6  the  Council  took  measures  for  pro- 
viding military  supplies,  and  even  authorized  the  imposition 
of  money  levies  for  this  purpose  for  which  there  seems  to  have 
been  no  parliamentary  authority.     In  March  of  this  year  the 


WAR    MEASURES    IX    FORMER    TIMES  5 

Council  directed  the  lords  lieutenant  of  the  maritime  counties 
to  make  a  collection  for  the  supply  of  match  and  powder,  to  be 
purchased  at  a  reasonable  rate  from  Henry  Dale  oi  London. 
A  special  levy  was  laid  on  the  clergy  to  furnish  horses  for  serv- 
ice in  the  Low  Countries.  County  levies  were  to  be  raised  a-.id 
trained  at  local  expense;  and  directions  were  sent  to  the  lords 
lieutenant  in  regard  to  mobilizing  the  trained  bands. 

Orders  were  issued  to  provide  for  the  defense  of  the  Channel 
Islands,  the  Isle  of  Wight  and  Portsmouth.  The  Susse.x  iron 
workers  were  directed  to  forge  guns.  The  east  coast  gentry 
were  instructed  to  raise  contributions  for  coast  ordnance.  Sea- 
port towns  were  required  to  furnish  ships,  and  rates  were  levied 
on  other  towns,  forming  a  precedent  for  the  later  ship  money 
levies  of  Charles  I. 

The  Council  also  issued  instructions  about  the  expenditure 
of  money.  The  Treasury  was  directed  to  transfer  necessary 
funds  to  the  Treasurer  of  the  Navy ;  and  a  grant  was  made  to 
Kent  for  the  defense  of  the  Thames,  Tilbury  and  J  ch. 

Measures  were  also  taken  to  suppress  internal  trc  ,es  and 
to  regulate  trade.  The  justices  of  ihe  peace  were  directed  to 
provide  petronels.  and  also  to  repress  carriers  of  news,  and  to 
look  to  the  landing  of  spies  in  the  fashion  of  priests.  In  De- 
cember, 1.5S7,  w^ord  was  sent  about  suspicious  visitors  from 
abroad,  with  instructions  to  keep  watch  in  the  ports  and  towns, 
so  that  they  might  be  apprehended  and  committed  into  close 
prison  without  bail  or  conference.' 

In  June,  15SG.  the  reexport  of  a  cargo  of  imported  grain  was 
forbidden.  Later  the  export  of  .jrrain  was  prohibited,  to  be 
subsequently  modified  by  permitting  a  limited  export  to  friendly 
places.  Again,  in  October.  1.58S,  the  Lord  Chancellor  was  di- 
rected to  restrain  the  transportation  of  grain  beyond  the  seas, 
unless  by  special  license.-  At  one  time  trade  with  the  Low- 
Countries  was  forbidden  and  the  export  of  provisions  stopped. 
The  Admiralty  Court  was  to  sit  for  the  trial  of  prize  cases.' 

'Acts  of  the  Prirx  Council.  New  Series,  297. 
'Ibid.,  xiv,  156,  2S2;  xv,  397;  xvi,  321. 


6  BRITISH    WAR    ADMINISTRATION 

In  October,  1587,  letters  were  sent  to  the  vice  admirals  of 
the  maritime  counties  concerning  a  general  stay  to  be  presently 
made  of  all  ships  and  other  vessels  that  are  able  to  cross  the 
seas,  to  be  employed  for  Her  Majesty's  service,  as  occasion 
should  require.' 

Rumors  were  received  about  the  approach  of  the  Spanish 
fleet.  Scouting  ships  were  sent  out.  The  Royal  fleet  was  re- 
ported to  be  ready  And  after  the  defeat  of  the  great  Armada 
there  were  reports  and  instructions  about  Spanish  prisoners  of 
war. 

It  will  be  noted  that  the  activities  of  the  Privy  Council  in- 
cluded, not  only  much  that  hter  would  have  required  parlia- 
mentary authority,  but  also  much  that  in  later  times  would 
have  been  done  by  specialized  administrative  officials  and  de- 
partments. This  wa?  in  part  due  to  the  absence  of  such  admin- 
istrative agencies.  Only  a  few  officials  and  organized  depart- 
ments had  been  established  before  this  time;  and  no  important 
developments  toward  permanent  administrative  machinery 
seems  to  have  been  made  during  the  war.  But  even  the  officials 
and  agencies  then  in  existence  seem  to  have  exercised  much  less 
autonomous  power  than  now;  and  the  specific  orders  and  in- 
structions in  particular  cases  came  in  large  part  from  the  Coun- 
cil, ilk'  management  of  war  administration  was  thus  almost 
entirely  centralized  in  the  hands  of  what  was  practically  a  small 
commiitci'  of  eight  or  ten  officials,  assisted  at  times  by  other 
officials  and  prominent  members  of  the  nobility. 


Wars   with   France 

During  the  series  of  wars  with  France  from  the  end  of  the 
seventeenth  century  the  formal  authority  for  war  measures  was 
based  more  largely  on,  and  to  a  steadily  increasing  extent  con- 
ferred by.  Acts  of  Parliament.  There  was  also  some  develop- 
ment of  new  administrative  agencies.  As  a  resr>  of  these  two 
factors  the  Privy  Council  was  less  active  as  the  zeal  source  of 

'  .-lets  of  the  Privy  Council.  New  Series,  xv,  254. 


WAR    MEASURES    IN    Fl  ^MER    TIMES  7 

official  decisions,  although  it  continued  to  be  an  agencv  whose 
formal  action  was  necessary  in  many  matters.  But  behind  the 
formal  procedure,  the  effective  direction  over  Acts  of  Parlia- 
ment. Orders  in  Council  and  the  orders  and  instructions  of 
officials  and  departments  was  in  fact  exercised  by  a  small  sroup 
of  ministers.  In  the  first  of  this  series  of  wars,  the  ministers 
acted  largely  under  the  personal  leadership  of  the  King.  William 
III.  During  the  eighteenth  century,  there  was  a  progressive 
tendency  towards  a  coherent  Cabinet.  During  the  greater  part 
of  the  final  contest,  the  Cabinet  of  that  time  was  under  the 
active  leadership  of  the  younger  Pitt. 


A'lM^  William's  War 

The  formal  supremacy  of  Parliament  in  the  government  after 
the  Revoluti.,..  [  1CS9,  and  the  recognition  of  the  need  for 
parliamentary  .nction  to  war  measures,  which  in  the  time  of 
F.lizalieth  would  have  bee.,  taken  on  the  initi.ntive  and  authority 
of  the  Privy  Council,  may  be  indicated  by  noting  some  of  the 
more  important  Acts  of  Parliament  in  the  war  which  followed 
the  Revolution.  In  addition  to  the  financial  legislation  authoriz- 
ing taxes  and  expenditures,  the  following  acts  were  passed  from 
IGS!)  to  1G92:' 

An  Act  Impowering  His  Majcstie  to  Apprehend  r.id  Deti.ine 
such  Persons  as  He  shall  find  just  cause  to  Suspect  are  conspir- 
ing against  the  Government. 

This  authorized  persons  arrested  by  order  of  the  Privv  Coun- 
cil to  be  held  without  bail;  and  thus  suspended  the  Habeas 
Corpus  Act. 

An  Act  for  punishing  officers  or  soldiers  who  shall  Mutinv 
or  Desert  their  Majesties"  Service. 

An  Act  for  Renewing  a  former  Act  for  Regulating  the  Meas- 
ures and  Price  of  Coal. 

An  Act  for  raising  the  Militia  of  the  Kingdom,  etc. 

^Statutes  of  the  Realm,  vi:  1  \V.  and  M  ch.  .',  5,  7,  19.  34  (1687)  2  W 
and  M.  ch.  7  (1690)  ;  3  W.  and  M.  ch.  7,  13  (1691)  ;  4  W.  and  .M.  ch.  19 
( 1()92 ) 


8  BRITISH    WAR   ADMINISTRATION 

An  Act  against  corresponding  with  Their  Majesties'  Enemies. 

An  Act  for  preventing  suits  against  such  as  acted  for  Their 
Majesties'  Service  in  Defense  of  the  Kingdom. 

The  last  of  the.se  is  of  special  importance,  as  indicating  on 
the  one  hand  that  measures  had  been  taken  without  parliamentary 
authority,  but  at  the  same  time  that  parliamentary  approval  of 
these  acts  was  now  considered  necessary  to  give  the  officials 
protection  against  suits  for  violating  the  law. 


The  Scz'cn  Years  War 

In  this  war.  which  invr Ived  a  large  part  of  Europe,  and  fight 
mg  .r  India  and  Amc,  ica.  there  was  another  series  of  importa  t 
parliamentary  statutes,  of  wh-h  the  following  mav  be  noted  • ' 

An  Act  for  the  speedy  and  efifoctual  Recruiting' of  his  Maj- 
esty's Land  Forces  and  Marines. 

An  Act  to  impower  his  Majesty  to  prohibit  the  exportation  of 
Saltpeter,  etc. 

An   Act   for  the  Encouragement  of   Seamen  and  the  more 
speedy  and  effectual  Manning  of  his  Majestv's  Kavy. 

An  Act  to  prohibit  for  a  Time  to  be  limited  the  exportation 
of  corn.  Malt.  Meal,  Flour,  Bread.  Biscuit  and  Starch. 

^n  Act  to  discontinue  for  a  limited  Time  the  duties  upon 
Corn  and  I'lour  imported,  etc. 

An  Act  to  prohibit  ...  the  exportation  oi  Corn.  Flour 
Beef.  J'ork.  Bacon  an.'  other  \ictuals  (except  Fish  and  Knots 
and  R,ce  to  be  exported  to  anv  part  of  luirope  Southward  of 
Cane  ]-:ni.sterre )  from  his  Majesty's  Coh^nies  and  Plantation, 
m  America  except  to  Great  Britain  or  Ireland  or  to  some  nf 
said  Colonies. 

Ar.  .Act  to  prohibit  for  a  limited  Time  the  n'.akin-  of  Low 
Wnies  an<l  Spirit^  In.m  Wheat.  Barlev.  Malt  or  anv  "other  s„rt 
'■i  grim,  (ir  in  ni  Meal  (ir  l'"lour. 

An  Act  inr  the  better  Onlering  of  the  Militia  lorces  in  the 
Several  Cc unities  of  .    .    .    luigjand. 

'  y.Uiitt's  ,it  lar,;,-.  vn.  vni:  _'<)  Ceo     II    rh    4     Irt     U    i  17?f,l  ■    W  r,       ir 


WAR    MEASURES    I.V    FORMER    TIMES  9 

An  Act  for  the  Encouragement  of  Seamen  emploved  in  the 
Royal  Xavy,  etc. 

An  Act  for  the  better  preventing  the  Importation  of  the 
Woolen  Manufactures  of  France  into  anv  of  the  Ports  of  the 
Levant  Sea.  by  or  on  behalf  of  any  of  His  Majestv's  Subjects, 
and  for  the  more  effectual  preventing  the  importation  of  Raw 
Silk  and  Mohair  Yarn  into  this  Kingdom. 

These  acts  furnish  precedents  for  later  and  for  some  recent 
legislation.  They  provided  more  definitely  for  recruiting  the 
army  and  navy;  established  important  regulations  and  restric- 
tions on  foreign  trade;  and  prohibited  the  use  of  grain  for  mak- 
ing liquors.  It  may  he  noted  that  the  act  for  recruiting  land 
torces  provided  for  a  levy  of  "  such  able  bodied  men  as  do  not 
tollow  any  lawful  calling  or  employment,  or  have  not  some  other 
lawful  and  sufficient  support  and  maintenance,"  to  serve  as 
soldiers.  This  act  was  to  be  enforced  by  the  justices,  borough 
magistrates  and  commi.  sioners  of  the  land  tax.  Provision  was 
made  for  payments  to  parish  officers,  and  for  a  special  allow- 
ance for  men  with  wife  or  family. 

Pitt's  War  Legislation 

In  the  last  great  war  with  France,  which  continued  with 
little  interruption  for  more  than  twenty  years,  statutorv  legisla- 
tion reached  its  ma.ximum :  and  this  war  mav  be  said'  to  have 
been  mainly  conducted  under  Acts  of  rarliamein.  During  the 
rir>t  (L-cade  of  this  struggle  the  directing  head  of  the  ll'ritish 
(iovernment  was  the  younger  William  Pitt;  and  the  altered  po- 
sition ot  Parliament  is  shown  bv  the  numerous  series  of  statutes 
enacted.  "Pitt  crystallized  the  Cmimon  Law  of  national  de- 
leiise  into  statutory  form,  he  extended  the  Common  Law  princi- 
ples to  include  compulM.ry  purchase  of  land,  he  widely  extended 
the  militia  system,  he  introduced  c.mpulsory  service  in  the  navy, 
he  saw  to  it  that  Parliament  was  supreme  in  war  finance."  ' 
This  does  not  moan  that  no  use  was  made  of  the  okler  forms 

'  Th.-  Tunes  History  „,„/  lincyclofi-iiii  of  llir  liar,  viii,  ,Ii,  1J4,  „   -(5. 


-  .Bae^acrsup.-* 


10 


BRITISH    WAR   ADMINISTRATION 


of  public  administration.  Beginning  some  years  before  the  war 
and  during  the  first  years  of  the  war,  a  series  of  Orders  in 
Council  were  issued  imposing  restrictions  and  regulations  on 
imports  and  exports,  which  were  not  only  unauthorized  by  Act 
of  Parliament  but  were  in  conflict  with  existing  legislation.  But 
the  need  for  parliamentary  sanction  for  these  orders  was  rec- 
ognized bj-  a  series  of  Indemnity  Acts  for  those  who  had  ad- 
vised or  executed  them,  and  authorizing  further  measures  vi 
the  same  kind.' 

Other  Acts  of  Parliament  also  authorized  Orders  in  Council 
for  the  regulation  of  exports  and  imports.  The  restriction  of 
cash  payments  by  the  Bank  svas  first  provided  b'-  a  Minute  of 
Coui  il  (February  20,  ITOT^,  afterwards  confirmed  and  con- 
tmued  by  Acts  of  Parliament.^  Again,  in  the  last  decade  of  the 
war.  another  well  known  series  of  Orders  in  Council  were  issued 
dealing  with  neutral  trade.^ 

Some  indication  of  the  number  and  scope  of  the  Acts  of 
Parliament  passed  at  this  period  may  be  given  by  noting  some 
of  the  principal  classes  of  statutes  passed.  The  regulation  of 
foreign  trade  and  intercourse  form  one  important  group.  In 
addition  to  the  Acts  of  Indemnity  confirming  Orders  in  Council, 
dealing  mostly  with  the  exports  and  imports  of  grain,  pot  and 
pearl  ashes  and  rock  salt,  other  acts  were  passed  authorizing 
restriction  on  the  export  of  naval  stores,  saltpeter,  arms  and 
atr.muniti.in.  candles,  tallow,  soap,  provisions  and  food;  to  en- 
courage importations  of  grain  and  provisions;  to  prohibit  the 
importation  of  cambrics  and  French  lawns;  and  to  regulate  trade 
with  ihe  ISritish  jxissessions  in  India.* 

Other  .lets  prohibited  the  circulation  of  financial  obligations 
issued  by   Frenoii  authorities;  protected  money  or  i)roi)crty  of 

'•• '"'"m  "',  ^-"/-"VJ?  ''''"■  '"•  '^''-  '   '  ''*'^  :  -^I  <'<■"■  "1.  ch.  4.'  ( 1-01  )  ■ 

,^,  ,'■''"■-  "f  January  7.  1807    November  11.  1807.  .April  26.  1809.  .\pril  21, 

*  \/„f,„,-^  at  Urgci.^  Geo.   Ill,  cli.  2  (170,!l  ;  .?.=;  Geo.   Ill,  ch    4   (170Sl  • 

i'll.  J  i'l800i.        ■'■  ■''         ''''^^-'"'  ''^  '"^o-  111.  ch,  117   (1707);  41   Geo.   IIL 


WAR    MEASURES    IN   FORMER   TIMES 


11 


persons  in  France  from  the  French  Government ;  cut  off  financial 
communications  with  Holland  and  Switzerland;  and  forbade 
British  subjects  from  going  to  or  remaining  in  France.' 

Related  to  these  may  be  noted  several  acts  for  the  conservation 
.)f  grain  supplies,  by  prohibiting  the  making  of  low  wines  and 
spirits  from  grain  and  flour:  prohibiting  the  making  of  starch, 
hair  powder  and  blue  from  wheat;  permitting,  and  later  re- 
quiring bakers  to  make  liread  with  a  larger  proportion  of  bran 
and  by  mixing  other  grains  or  potatoes  with  wheat.' 

Another  series  of  statutes  provided  for  the  regulation  of  aliens 
and  the  suppression  of  internal  sedition,  conspiracy  and  treason. 
An  act  for  cstal.li.>^hing  regulations  respecting  aliens,  passed  in 
17!»:!.  required  masters  of  vessels  to  file  declarations  as  to 
foreigners  on  l^oard ;  and  required  aliens  to  furnish  declarations, 
to  secure  passports,  to  register  and  surrender  arms.  The  land- 
ing and  residence  of  aliens  might  be  restricted  by  Orders  in 
Council,  and  the  Secretary  of  State  might  issue  warrants  for 
searching  tiie  houses  of  aliens  for  weapons.' 

Legislation  against  internal  dangers  inck.  ,  acts  to  prevent 
traitorous  correspondence  with  the  enemy;  to  auth.irize  the 
<letention  without  bail  of  persons  suspected  of  conspiracy  (sus- 
pending the  Habeas  Corpus  Act):  against  treasonable  and 
seditious  practices:  and  ior  preventing  seditious  meetings 
and  assemblies."  One  act  authorized  the  Postmaster  General 
t(.  open  and  return  certain  letters  held  in  the  post  office  •, 
and  another  regulateo  the  printing  and  publication  of  news- 
papers,' 

Xumen.us  acts  were  provided  for  raising  revenue.  At  each 
scssi.  11  there  were  sev..ral  acts  authorizing  loans  ;,>•  the  issue  of 
excheciuer  i)ilis:  and  as  the  war  progressed  larger  loans  were 

:il!dvV4S^7']u7y8'''-  ^   "^'^^^^  '"  Geo.  Ill,  ch.  9,  79  (1794);  J8  (ico 
hl!dflo''fmiO).  '''•  "'■  "''  "'''^*  •  -^^  '''''■  '"•  '''■  ^'  "  ^'7^5)  ;  41  Geo. 

ii/ ciTVnVw) '"'  '''■  ■*  *''"■"■  ''^-  ■'"'  G'"-  '"■  '"*'■  ^-  ^'^^•"  ■  -''^  ''^■"' 

'yfciJ..  JS  Cieo.  Ill,  ch.  b2  (1795):  3»  U-o.  111.  ch    78  (1798). 


12 


nRITISII    WAR    ADMIXISTRATIOW 


authorized  by  means  of  annuities.'  Loans  made  by  the  British 
Government  to  its  luiropean  allies  were  coniirmetl  by  Acts  of 
Parliament.-  \cw  and  jidditional  ta.xes  were  imposed  from 
time  to  time.  An  act  of  ITlts  provided  for  what  was  practically 
a  graduated  income  ta.x  on  persons  with  incomes  over  £00  a 
year,  with  a  ma.ximum  of  one-tenth  on  incomes  of  £200  and 
over.^ 

There  was  also  important  currency  legislation.  The  banks 
in  Scotland  were  authorized  lo  issue  notes  for  less  than  twenty 
shillings;  and,  as  already  noted,  a  Minute  of  Council  for  the 
restriction  of  cash  payments  by  the  Bank  of  England  was  con- 
firmed, and  later  renewed,  by  Act  of  Parliament.* 

In  marked  contrast  with  previous  wars,  there  was  a  volumi- 
nous mass  of  legislation  in  regard  to  the  army  and  navy.  In 
17U5  acts  were  passed  for  raising  men  for  the  navy  by  apportion- 
ment among  the  several  counties  and  ports:  and  authorizing  the 
magistrates  to  make  a  levy  on  able  l>odied  and  idle  persons  for 
this  purpose.'  Other  acts  provided  for  augmenting  the  militia, 
for  raising  volunteer  forces,  for  increasing  the  artillery  corps, 
and  for  raising  a  force  of  cavalry."  The  rates  of  subsistence 
for  quartering  soldiers  were  increased  from  time  to  time;  and 
the  .system  of  relief  tc  families  of  men  in  the  militia  -,.as  read- 
justed.' Acts  of  1700  made  a  definite  apportionment  liy  counties 
of  the  numbers  to  l)e  raiseil  for  the  army  as  well  as  the  navv." 

The  Defense  of  the  Realm  .Act  of  IT'.iS  practically  provided 
for  compulsory  service  for  the  army.  The  county  and  deputy 
lieutenants  were  directed  to  procure  uturns  of  men  of  i:,  years 
of  age  and  under  00.  showing  those  in  the  volunteer  corps  and 
those  willing  to  be  employ-Kl  in  the  defense  of  the  country;  re- 

-,o  7'"''-;  '^'^  ^'•^°-  '"•  '■''■  '5  ( 1790)  :  34  Geo.  III.  cli.  1,  ?'    28,  29  62  ( 1794 >  ■ 
38  Geo.  111.  ch.  8,  20.  .?7.  82.  8.5.  84,  91   (179.!)  w^   ,  , 

'  Ilnd    3.S  Cvn.  III.  ch.  9.<  (i;<).S)  :  ,^7  Geo.  III.  ch.  59  (1797). 

Ihid..  M  Geo.  ill,  ch.  16  (  17Wi 
'  ll'id..  ,57  Geo.  Ill,  ch.  40.  45,  62,  91  :  .W  fno.  HI  ch    1   2  (1797) 
Ihiti.,  .^5  Gdi.  111.  ch    5,  9,  ,14  (17<)5), 

,,,'  '('"'v  ■'"'  '''■"■  '"•  '■''■  ''■■  ■"  <  '"''■'^  :  •'■''  "''f"-  '".  ch,  8,?  ( 17')5i  ■  37  Geo 

'    ,  f,':/'  ''■  '■-•  '"•'  '^7>>b,:  M  Geo.  Ill,  ch.  17.  18,  19,  45.  55  (17'I8) 

II,      ,     V,-'\*.',IT-  '"■  *■''■  ^  '  ^^   ''795)  ;  36  Geo.  Ill,  ch.  36  (1796)  ;  38  Geo. 

*Jbtd.,  37  (ico.  MI.  ch.  4.  5  (1796). 


WAR    MEASURES    IX    FORMER    TIMES 


13 


turns  of  Quakers,  aliens  and  infirm  persons,  and  returns  of 
available  boats,  wajjons,  horses  and  provisions.  If  there  were 
not  sufficient  volunteers,  the  militia  laws  for  compulsory  serv- 
ice were  to  be  put  in  force.  Requisitions  on  the  largest  scale 
were  authorized ;  and  the  principle  of  compulsory  occupation 
and  purchase  of  necessary  land  by  the  government  was  intro- 
duced.' 

Other  acts  of  this  year  suspended  the  restrictions  on  impress- 
ment for  the  navy,  and  provided  for  raising  a  force  of  miners 
in  Cornwall  and  Devon  for  the  defense  of  the  countrv." 


Admimslrath-c  Agencies 

Along  with  the  great  expansic^n  of  parliamentary  legislation 
during  the  eighteenth  century  wars,  another  important  chanf^e 
in  war  methods  was  the  increasing  development  of  admin- 
istrative authorities.  Neither  in  the  voluminons  statutes  of 
Pitt's  regime,  nor  in  the  Orders  in  Council  which  were  issued 
do  we  find  anything  to  correspond  with  the  speeific  orders  and 
instructions  of  the  Privy  Council  in  the  time  of  Queen  Elizabeth. 
These  were  now  issued  by  the  various  ailministrative  officials, 
departments  and  subordinate  agencies  which  had  l)een  established 
from  time  to  time ;  and  some  of  the  more  important  authorities 
may  here  be  noted. 

The  ofiice  of  Lord  High  Admiral  had  Iieen  placed  in  commis- 
sion; and  in  adilition  to  the  .Xdmiralty  Board  there  were  other 
agencies  for  naval  administration,  notably  the  Xavv  Board  and 
the  Victualing  Board.  The  ofiice  of  Lord  High  Treasurer  was 
also  in  commission:  and  the  Treasury  Board  during  the  eight- 
eenth century  was  an  active  administrative  agency.  The  prin- 
cipal Secretary  of  State,  who  in  the  reign  of  l-llizabeth  had  been 
little  more  than  a  ministerial  agent  of  the  Privv  Council,  had 
become  one  of  the  first  officials  of  the  kingdom;  and  (hiring  the 
eighteenth  century  there  were  two.  and  f(jr  a  time,  three.  Secre- 
taries of  State. 

'  Ibid..  .W  (.00.  Ill,  ch  ?7  (17QS). 
'Ibid..  38  (ieo    III,  ch.  46.  74  1 1798). 


14 


BRITISH    WAR    ADMINISTRATION 


Colonial  and  trade  affairs  were  looked  after  to  a  consider- 
able extent  by  the  Lord:;  of  Trade  and  F'lantations,  the  predeces- 
sor of  the  later  Hoard  of  Trade.  .\rni\  administration  was  still 
but  little  developed :  but  the  subordinate  office  of  Secretary  for 
War  had  been  established  and  exercised  some  administrative 
powers. 

But  the  active  control  over  the  formal  machinery  of  Acts  of 
Parliameir  Orders  in  Council  and  orders  and  i.,siructions  of 
admini.strative  officials  was  exercised  by  the  group  of  ministers, 
developino;  into  the  extra-legal  Ixxly  known  as  Cabinet.  This 
liody  was  in  fact  the  agency  which  corresponded  to  the  Privy 
Council  of  Queen  Elizabeth's  day.  Bills  for  parliamentarv 
statutes  were  drawn  up  under  its  direction,  and  passed  i)y  I'arlia- 
meiit  and  approved  by  the  King.  Orders  in  Council  were  decided 
by  the  same  group.  The  atlministrative  officials  and  iiepart- 
menis  also  acted  under  the  general  directions  and  intluence  of 
the  Cabinet. 

In  several  respects,  however,  the  Cabinet  of  the  eighteenth  cen- 
tury differed  from  the  Privy  Council  of  the  sixteenth  century. 
It  was  not  only  an  extra-legal  l)ody,  l)ut  as  such  had  no  official 
record  of  its  proceedings,  so  that  no  definite  account  of  its  meet- 
ings and  decisions  is  available.  At  the  same  time,  the  min- 
isters who  formed  tiie  Cabinet  became  more  and  more  respon- 
sible to  Parliament,  and  practically-  to  the  House  of  Commons. 
This  responsibility  was  not  clearly  recognized  at  the  end  of  the 
seventeenth  century ;  but  it  became  more  definite  after  the  resig- 
nation of  W'alpole  in  1742:  and  the  great  mass  of  statutory  leg- 
islation in  the  time  of  Pitt  is  an  indication  that  the  form  of 
parliamentary  actit)n  was  now  needed  to  confirm  the  important 
ileciMoiis  ot  the  group  of  executive  officials. 


CHAPTER  II 
Forms  and  Agencies  of  Action 


Introuictory 

Tn  the  conduct  (if  the  i)reseiit  war  there  liave  Iieen  startlin<j 
<level(ii'nietu.s  and  contrasts  in  the  forms  and  ajjencics  of  gov- 
ernmental action  by  Cireat  Britain,  as  compared  both  with  peace 
conditions  and  with  the  methods  and  machinery  employed  in 
former  wars.  In  the  contest  with  Spain  during  the  reign  of 
Queen  Jllizatieth.  the  management  both  of  the  war  and  the  in- 
ternal administration  of  the  country  was  exercised  chiefly,  anil 
almost  entirely.  b\  the  Privy  Council.  There  was  no  parlia- 
mentary I'jgislation.  except  for  the  levy  of  new  taxes:  and  there 
were  lew  specialized  administrative  officials  or  other  agencies 
of  the  central  government.  In  later  wars  parliamentary  legis- 
lation increased  both  in  amount  and  importance;  and  there  was 
also  >ome  development  of  central  administrative  machinerv.  In 
the  time  of  the  younger  Pitt,  parliamentary  action  reached  its 
maximum:  and  there  was  a  voluminous  and  bewildering  mass 
of  statutory  legislation.  There  was  also  a  larger  use  of  special- 
ized administrative  officials:  and  the  Privy  Council  was  rela- 
tively a  nuich  less  important  factor  than  either  at  earlier  times 
<ir  in  the  present  war.  .\t  the  same  time  the  active  control  and 
direction  of  the  government  was  in  fact  exerci.sed  bv  the  extra- 
leg.il  Cabinet,  under  the  forceful  leadership  of  Pitt,  the  Prime 
Minister. 

In  tlic  i)r>.--.ciU  war  Ij.itli  tlie  Privy  Council  ami  I'ariiaitUMlt  played  an  active 
pan  in  tlic  ciiiiiluct  oi  atfairs.  The  subservience  ui  the  Council  to  Parliament 
was  in  theory,  heyond  dor.bt.  hut  in  fact  the  tnembors  of  the  Comicil  e\crci-i-d 
a  coiitrollinK  force  in  the  deliberations  of  Parliament,  a  reversion  to  the 
l-:ii/abetlian  model  which  was  hardly  accompanied  by  the  <;ame  .nacuy  of 
administration  or  jtrasp  of  the  essential  teatures  of  the  problem.' 

'  The  Tir.ics  History  and  liucyclopcdia  of  the  War.  viii,  p.  47, 

15 


10 


BRITISH    WAR    ADMIMSTRATION 


Acts  of  I'arliamcn  have  been  numerous-more  so  than  a.  anv 
■me  except  that  of  fi.,_an,l  the  le.al  supremacy  of  the  K  ' 
I  arhanu-nt  has  been  formally  recognized  bv  'securing  si 
Ic^>ht,on  or  ,„ost  of  the  unusual  powers,  at  least  in  internal 
atfa  rs  Lur  besules  the  actual  control  exercised  bv  the  Cabinet 
.n  the  lormulat.on  ot  statutes,  these  measures  have  been  for  the 
most  part  br.et  an.l  have  granted  sweeping  authorTtv  b  the 
rtt:on":\'"-'"t^  "  ^^"^-  '"  ^--*'  -^^  ^epartmenfa 

'^re'^.S"  in'nutT"""";  "'  ""'''''  ■"  ^^°""^''  "^^^  '--  --^ 
.reater  m  number  and  more  important  in  content  than  at  anv 

previous  tmie-more  e.en  than  in  the  days  of  Elizabeth     To  '^ 

ut  Acts  ot  Parliament,  old  and  new;  but  there  has  also  been  a 
Mgn^ficant  revival  of  these  forms  of  action  based  on  the  un 

r  •  ;itir""^  -^  -™ '-  --  of  t^  ti:; 

But  in  addition  to  this  return  to  the  practices  of  earlier  times 
there  has  also  been  a  new  and  remarkable  development  o  a  U 
mmistration  through  specialized  departments,  officials  and  other 

and   has  d.rected   their  encr J .',     n  T    ^      .     u  ^^'=''^'•^''^'1  departments 

efficient  conduct  n     the  war     T  ,     i'""  ".  1''  ""''  ^""'"«   '"  "><^  -o- 

-  -et  re.uire.en.n:;:::;,x:;ri:ra  ~=^^^^ '-  -''-^^'- 


Vj;]  '()'"?"  ^{'■•f'■'^v  aud  F.ncyclotcdui  of  the  ll\,r 
ll'c    I  oi,„a,l  (Ju^rlcrly,  Xo.  7  (IQloj/p.  148. 


viii.  p.  49. 


FORMS    AND    AGENCIES    OF    ACTION 


17 


As  a  result  of  these  new  functions  and  the  formation  of  new- 
governmental  a-encies.  there  has  been  a  remarkable  increase  in 
the  volume  and  importance  of  departmental  regulations. 

Forms  of  Action 

Acts  of  Parliament 
Between  the  declaration  of  war  with  German v  (on  August  4 
1014)  and  the  end  of  the  regular  session  (on  September  IS) 
no  ess  than  M  Acts  of  Parliament  of  various  kinds  were  passed 
and  received  the  Royal  Assent.  The  number  of  these  is  of  itself 
an  mdication  that  the  examination  and  discussion  in  Parliament 
was  obviously  tormal  and  perfunctory.  It  is  true  that  most  of 
the  l.ills  were  brief:  but  they  were  brief  mainly  because  they 
gave  uule  powers  to  the  executive  to  do  whatever  seemed  ex- 
pedient. ■•  The  Houses  may  be  said  to  have  agreed  to  a  sort 
ot  Lltiiinnn  scnatuscoimiltum:  vidcant  consoles."  ' 

First  may  be  noted  the  financial  measures.  A  vote  of  credit 
tor  tlOO.OCO.,*,,.)  authorized  expenditure  for  anv  war  purpose 
without  specihcation  or  estimate;  and  was  followed  bv  other  ancl 
larger  votes.  An  act  to  authorize  the  postponement  of  payments 
established  a  temporary  moratorium;  a  currencv  and  bank  notes 
act  provided  tor  the  issue  of  paper  bank  notes;  and  later  a  grant 
ot  emergency  powers  to  the  courts  was  preliminarv  to  the  ter- 
mination of  the  genera!  moratorium.  Other  acts  dealt  with  the 
treatment  ot  alien  enemies  and  gave  broad  powers  over  persons 
and  j.n.perty  tor  the  defense  .:f  the  realm.  There  were  acts 
for  the  control  of  foreign  trade,  trading  with  the  enemv 
and  the  lioardmg  of  supplies.  An  increase  of  1.000,000  men 
m  the  army  was  .-..nthorized ;  and  provision  was  made  for  prize 
courts.  ' 

Many  of  the  emergency  acts  were  departmental  measures  pro- 
tecting tho>e  who  entere.1  active  service  from  being  penalised 
K.r  this  action.  .Special  provisions  were  made  to  permit  police 
constables  and  school  teachers  to  join  the  army.     The  Insurance 

'  The  Political  Quarterly,  i,  162  (1914). 


idj.:  '.jroLirLvsesti^ 


JS 


llRITISri    WAR    ADMINISTRATION 


Act  was  adapted  tc.  meet  the  case  ,.f  those  servinp  temporarily 
With  the  army  and  „avy.  Other  measures  pmvi.led  i.,r  tlic 
rehet  of  those  dependent  ,in  the  combatants.  There  vvas  some 
opposition  to  the  measures  aiitlu.rizii.j;  restrictions  nn  the  sale 
ot  nitoxicati'iff  liquors  and  for  the  prevention  of  trading  with 
the  enemy;  but  no  important  changes  were  made  in  the  bills  as 
presented. 

At  the  adj.iurned  session  of  Parliament  in  November  addi- 
tu.nal  measures  were  passed,  including  the  amendment  and 
revision  ot  the  acts  for  the  defense  of  the  realm,  provi.ling  com- 
pensation tor  injuries  in  war.  and  placing  restrictions  on  exports 
and  the  hnancc  act  providing  means  for  raising  funds  for  carry- 
ing on  the  war. 

During  the  sessions  of  1915.  some  fifty  war  emergencv  Acts 
ot  Parliament  were  passed.     The  most  important,  as  involving 
novel    legislative   principles   and   administrative   agencies     were 
those  establishing  the  new   Ministry  of   Munitions,   regulating 
the  production  of  munitions  of  war.  providing  for  a  general 
system  ot  national  registration,  limiting  the  price  of  coal,  and 
restricting  the  increa.se  of  rent  and  mortgage  interest.     In  addi- 
tion there  were  statutes  amending,  revising  and  supplementing 
the  previous  legislation  relating  to  the  defense  of  the  realm  (in- 
cluding the  control  of  the  liquor  traffic),  the  control  of  foreign 
trade,  trading  with  enemy,  the  system  of  compensation  and  pen- 
sions tor  men  in  the  armed  forces,  the  national  insurance  system 
and  war  loans  and  other  financial  measures.     The  laws  relating 
to  the  exempti(5n  of  trusts  and  evidence  were  amended;  and 
emergency  p, ,wers  were  gi-en  to  universities  and  colleges.    More- 
over, the  duration  of  the  H.nise  of  Commons   (which  should 
have  expired  under  the  Parliament  Act  of  IDll   in  1!)1.-,)  was 
extended ;  the  reelection  of  ministers  after  changes  in  the  Cabinet 
was  dispensed  with,  and  local  elections  were  postponed. 

In  l!»l(i.  the  most  signit^cant  Acts  of  i'arliament  were  those 
providing  for  compulsory  militarv  service  and  (in  December) 
tho.se  creating  new  ministries.  There  was  also  additi.mal  leg- 
islation amending  the  defen.se  of  the  realm  acts,  and  granting 


FORMS    AND    AGENCIES    OF    ACTION 


19 


new  emergency  powers  to  courts  and  local  authorities,  as  well  as 
on  other  subjects. 

During  HUT  acts  were  passed  creating  other  new  ministries, 
also  a  Corn  Production  Act.  .\Itogethcr  70  government  hills 
were  introduced,  of  which  (!7  became  law  ami  '.•  failed  to  pa--s. 

The  enlarging  volume  of  parliamentary  legislation  may  be 
indicated  by  noting  the  increased  number  of  acts.  During  the 
three  years  (  I'.U  l-r.ti:>  I  before  the  war,  there  was  passed  a 
total  of  i:i;;  public  acts.  In  the  three  years  (  in  11-1 '.Hi; )  since 
the  war,  the  number  of  pul)lic  acts  has  been  J(i7,  or  duuble  the 
numlK-r  for  the  previous  three  years.  In  practically  all  of  this 
legislation  the  action  oi  Parliament  has  l>ecn  substantially  that 
(jf  passing  the  measures  presented  b\-  the  executive  government, 
conierring  with  little  or  no  hesitation  the  enormous  powers 
asked.  Indeed  the  principal  criticism  made  of  the  Cabinet,  up 
to  the  end  of  llMf,,  was  oi  its  hesitation  and  delay  in  asking 
for  legislative  authoritv.  In  one  important  case,  when  the  pro- 
posal for  the  second  coinpul>ory  military  service  bill  was  first 
presented,  the  dissatisfaction  in  Parliament  with  its  limited 
scope  led  to  its  withdrawal  (without  a  formal  vote)  and  the 
liresentation  of  a  more  sweeping  measure. 

It  i->  signiticant  of  the  relations  that  had  cume  to  exist  be- 
tween the  Cabinet  and  Parliament  (even  before  the  war),  that 
an\  indication  of  ilissatisfaction  in  Parliament  with  government 
bills  presented  was  discussed  as  an  evidence  of  the  weakness 
of  the  Cabinet.  It  wa  assumed  not  only  that  the  Cabii.et  should 
present  definite  propo.sals  for  legislaticjn.  but  that  the  Cabinet 
proposals  should  as  a  matter  of  course  l)e  enacted,  and  if  these 
proposals  were  not  acceptable  the  fault  was  necessarily  with  the 
Cabinet.  Thus  the  ciMiventional  fiction  that  the  Cabinet  is  con- 
trolled by  Parliament  has  broken  down. 

On  the  other  hand  there  has  been  a  notable  ab>ence  of  •■  Acts 
of  Indemnity."  which  formed  a  striking  feature  (jf  Pitt's  war 
legislation.  Practically  all  of  the  enormous  powers  e\LTci>ed 
by  the  execinive  authorities  seem  to  have  been  base(i  on  parlia- 
mentary legislation  or  on  recognized  common  law  powers ;  and 


20 


BRITISH    WAK    ADMINISTRATION 


there  has  apparently  Ix-en  little  nee.I   for  .li,spe„si„.  l.,,isL,ti„„ 
UM-O.CC,  the  executive  o.Vuers  for  technical  violaHons  of  the 


Ihe  list  below  presents  some  of  the 
lament  passed  during  tlie  present  war: 


Pari 


more  important  Acts  of 


i  and  J  i/.Mr,;,'  C 

Chapter    11  rostponement  of  ravmonts  Act 

1.  Aliens  Kestriction  Act 

l.i  I'n^o  Courts  (Procedure)  Act 

N  Currency  and  Hank  Notes  Act 
/-  Anieniled  Aug.  J8 

.»»  ncteiise  oi  tile  Realm  Act 

(-  onsolidation  Act 


M     Injuries  in  War  ( Coinpensation )  Act 

IS  .New  .Act 

t>4    Customs  ( K.xportation  Prohibition)  Act 

60  \v;7i:;;;;Act''"'"""'""'  '^^-^'^'"i"-''  Act 

61     Special  Constables   .Act 

W     Isle  oi  .Man  (War  LeRislation)  Act 

U    Co,m'","p*'    -'""'"  ''''^•"'P"'-ary  Restrictions)  Act 
-n     ,,°."'^'\'^-'"'^^''Kt'"cv  Powers)    Act 

fl  J  ,  "'"  S?""*  *  '•-K>Pt-  ^a"=!ibar  and 

fU  Army  Pension  .Act 

8J  Hills  oi  Exchange  Act 

84  Irish^Polico  Constables  (  Xaval  and  Military  Service) 

88  Suspensory  Act 

8()  Police  Constables  (Xaval  and  Military  Service)    Act 

87  Irading  with  the  linemy  .Act                    ^eivjco  .\ct 

H    7- ■     Amending  Act. 

11  Go.-rnment  War  Obligations  Act 

7  linance  Act.  1914.     Session  2 


•  and  Cyprus )  .Act 


Chapter 


27 
3(. 
JO: 


21 
41 
50 
51 
54 
57 
60 

60 
76 


vm; 

•\ii« 

.    .1 

SlK 

.    5 

•'K 

5 

u« 

6 

Aug 

8 

N'ov 

n 

Aug 

10 

.Nov 

Zl 

Aug. 

28 

Nov. 

27 

Aug.  28 

Aug. 

28 

■•^ug. 

Ji 

.Aug. 

.11 

Sept. 

18 

Sept. 

18 

Sept. 

18 

Sept. 

18 

Sept. 

18 

Sept. 

18 

N'ov. 

7"? 

.      A. 

27 

.■.o>. 

27 

7.3 


•^  and  (J  George  l'. 
42    Defense   of  the    Realm    (Amendment)    Acts 

Customs  (War  Powers)  Acts  l\l\,    \l' 

-    \ — ■  (Exportation  Restrictions)    Act 

National  Insurance  (Pt.il  Amendment)  Act 

Legal  I  roceedings  against  E       ,ies  Act 

Naval  Discipline  .\cts  ^1^1,    ,/-, 

"'Pot^xr:)     mI       ^^"^*^"       (Emergency    • 
British  Ships  (Transfer  Restriction)  Act 
Police  (  hinergency  Provisions)   Act 
Keelectinn  of  .Ministers  Act 
-Mmistry  of  .Munitions  Act 
-Mnnitinns  of  War  .Act 
Prize  Courts  .Act 
War  I.uan  .\ct 

Supplemental  Provision 
National   Registration   .\ct 
Elections  and  Registration    Act 


lOl.j-Ui 


Ma> 

19 

,  July  29 

June 

24 

Mch. 

\U 

.\!ch. 

16 

July 

29 

Mch. 

Ifi 

.Mch. 

Ir, 

.Mav 

1') 

June 

4 

June 

9 

lulv 

) 

Julv 

) 

July 

> 

Dec. 

?' 

julv 

15 

Julv 

29 

FORMS    AND     \GENCIES    OP    ACTION 


21 


C'liaptir  75 
79 
98 
62 
89 
81 
83 
97 

96 
104 


Chapter    11 
12 


•'>  aid  'j  George  /'. 

;  rice  of  Coal  (Limitation)  Act 

TradiriR  with  the  Knemy  (Amendment')   Act 

Extension  of  Powers 
Fi.iance  Act 

No.  2 
American  Loan  Act 
Naval  and  Military  War  Pensions  Act 
Increase  of  Kent  and  Mortgage  Interest  (War 

l\estrictioiis)   Act 
Government  War  Obligations  Act 
Military  Service  Act 

''  and  7  George  I'. 

24    1-inance  Acts 

Local  Government  (Emergency  Provisions)  Act 
18     Courts    (Emergency   Powers)    Amenoi.ient   Acts 

May  17, 

Military  Service  Act  (Session  2) 


lOlJ-10 


15 

26;  57     Output  of  Heer  (Restriction)  Acts 

33 

34 


July 

29 

July 

29 

Dec 

2i 

July 

29 

Dec. 

23 

Oct. 

13 

Nov. 

10 

Dec. 

23 

Dec. 

^3 

Jan. 

27 

IfllU 

April 

19 

May 

17 

June 

1 

May 

25 

Dec. 

18 

Aug. 

10 

Aug. 

23 

Dec. 

22 

Dec. 

22 

Dec, 

r> 

Dec. 

22 

19n- 

IS 

Aug.  3, 
.\rmy  ((.ourts  of  Inquiry)  .Act 
Special   Commission    (Dardanelles   and   Mesopo- 
tamia) .\ct 
43  War  Charities  .Act 

63  Defence  of  the  Kcalm  (.Acquisition  of  Land)  .Act 

65  Ministry  of  Pensions  .Act 

68  Nevv-  Ministric.  and  Secretaries  Act 

67  War  Loan  .Act 

7  and  '**  George  I'. 

War  Pensions  .Act 

Ministry  of  National  Service  Act 

New  Ministries  .Act  (Reconstruction') 

Military  Service  (Review  of  Exceptions)  .Act 

Nav.ii  and   Military  War   Pensions  Acts 

M.initions  o*  Wai    "'f. 

Corn  Production  Act 

Coal  Mines  Control  Agreement  (Confirmation)  Act 

Grand  Juries  (Suspension)  Act 

Courts   (Emergency  Powers)    .Act  No.  2 

Representation  of  the  People  .Act 

Royal  Proclamations  ami  Orders  in  Council 

More  numerous  and  more  detailed  than  the  Acts  of  Parlia- 
ment have  been  the  executive  orders  and  regulations  of  the 
first  rank  issued  in  the  form  of  Royal  Proclamations  and  Orders 
in  Council.  No  clear  line  of  demarcation  can  be  made  between 
these  two  forms  of  procedure,  as  both  have  l^een  used  for  sub- 
stantially similar  purposes.  As  an  indication  of  the  extent  to 
which  these  forms  of  action  have  been  used,  it  may  be  noted 
that  between  August   1   and  September  'M,   11)14,  there  were 


22 


BRITISH    WAR   ADMINISTRATION 


issued  27  Royal  Proclamations  and  more  than  00  Orders  in 
Council.'  Since  then,  from  time  to  time,  many  additional  proc- 
lamations and  Orders  in  Council  have  been  issued. 

Several  types  of  these  executive  acts  may  be  recognized.  In 
the  first  place,  there  were  proclamations  issued  under  the  Royal 
preropative,  witiunit  statutory  authority  and  without  even  the 
formal  approval  of  the  Privy  Council.  E.xamples  of  these  were 
the  prodamatio.is  of  August  :J.  authorizing  the  .Admiralty  to 
requisition  British  ships,  and  that  of  .August  ',.  proclaiming  the 
giving  of  financial  assistance  to  the  enenn-  to  be  high  treason  and 
announcing  that  traitors  would  be  proceeded  against  with  the 
utmost  rigor  of  the  law.  Xeither  of  these  was  confirmed  <,r 
raofied  by  later  Act  of  Parliament  or  the  Privy  Council. 

Still  more  sweeping  was  the  Royal  Proclamation  of  uigust 
4,  asserting  the  jirerogative  iiower  to  take  all  measures  neces- 
sary for  i;.c  public  .safety  and  the  defease  of  the  realm,  and 
authorizing  the  Admiralt>-  and  Army  Council  to  take  such  stejjs 
as  they  deer-d  necessary  for  this  purpose.  But  before  much 
could  have  l)een  done  under  this  proclamation  the  first  Defen.se 
of  the  Realm  Act  was  passed  by  Parliament  (August  S)  author- 
izing regulation  by  Orders  in  Council  for  the  .same  purpose;  and 
further  action  was  taken  un<ler  this  statutory  authority. 

Anot.er  type  was  the  Royal  Proclamations  and  Orders  issued, 
also  without  express  statutory  authority,  but  by  and  with  the 
advice  ■:'  the  i'rivy  Council.  In  this  category  may  be  noted  the 
proclamation  of  August  i'  authorizing  the  imstpon'ement  of  pay- 
ments and  thit  of  August  r>,  prohibiting  trading  with  the  enemy. 
Both  of  these  wen'  conlirmed  l)y  subsequent  Acts  of  i'arliament. 
Orders  in  C\.:tncil  of  the  same  class  include  that  of  August  :!. 
calling  reserved  and  retired  army  and  navy  officers  to  active  ser- 
vice; that  .if  August  1,  for  the  detention  o*  Cerinan  ships  in 
Pritish  ports;  that  of  August  .-..  auth.Mizing  the  .Admiralty  to 
constitute  a  prize  vonrt;  and  that  of  August  20,  adopting  the 
ru.es  of  the  Declaration  of  l.,,n(loii  with  certain  modification.s. 
Such   Orders   in   Council,   dealing  directly   with   the  conduct  of 

'  .Uij;iii,i/  ,,/  /■nirr.j.r.cy  /..■•/isUilioii.  pp.  557    Sb3. 


■i«;-,W4 


FORMS    AND    AGENCIES    OF    ACTION 


23 


military  operations  and  enemy  property,  have  in  the  past  been 
regularly  made  without  statutory  authority.  As  the  war  pro- 
gresse'.'.  Muitional  Orders  in  Council  of  this  class  were  issued 
irc.M  tm-e  u,  i,;:v:.  lealing  with  contraband,  blockade  and  the 
reg  ;.!•  .n  ,.t  neutral  trade.  It  should  be  noted,  however,  that  in 
the  --....  "-,7  .•,;m-.  tlic  Vdiiiir-'lty  Court  held  that  nich  Orders  in 
Councd,  .....  u.  ...!  nn  Acts  of  Parliament,  were  sul)ject  to  the 
established  rules  of  internatior.al  law.  More  notable  was  an 
Order  of  August  l's,  canceling  so  much  of  a  Royal  Proclama- 
tion of  September  IT,  1!)()0.  as  related  to  the  distribution  of  the 
net  ])rocee(ls  of  naval  prizes. 

.\nother  illustration  was  given  of  the  reserved  powers  of 
the  Briti.sh  Crown,  by  an  Order  in  Council  of  April  i:i.  li»l.-i. 
authorizing  and  directing  the  Ministers  of  Trade  and  Customs 
in  Australia  and  the  Minister  of  Customs  in  Xew  Zealand  to 
reijuisition  insulated  spaces  in  British  ships  trading  between 
Aust  dia  or  New  Ze.dand  and  the  United  Kingdom.  The  Royal 
authority  was  here  asserted  to  control  the  actions  of  ministers 
of  two  .self-governing  dominions,  without  the  intervention  of 
the  Dominion  Parliament  or  the  Dominion  Cabinet. 

It  was  a  valuabli'  instance  of  the  t.ict  that  the  prcroRativc  powers  of  the 
Crown,  so  far  from  bciiiK  exhausted,  were  still  in  19IS  of  vast  economic  use 
ni  speedily  arran^uiK  intercolonial  affairs  and  concentrating  the  whole  avail- 
able forces  nf  the  luiipire  on  any  special  or  urgent  problem.' 

Much  mon  mimerous  than  either  or  both  of  the  foregoing 
classes  were  the  Royal  Proclamations  and  Orders  in  Council 
issued  under  the  authority  of  Acts  of  Parliament.  Of  these,  it 
is  advi>ablc  to  distinguish  between  tho.se  issued  under  earlier 
legislation  and  tiiose  issued  under  statutes  passed  during  the 
present  war. 

I'hus.  on  August  :!,  three  Royal  Proclamations  were  issueil : 
one  calling  .)ut  the  naval  reserve,  under  the  Koval  Xaval  Re- 
.serve  \'oiunieer  .Act  of  IMl:  one  pr(.hil>iting  the  exportation 
of  warlike  stores  under  the  Ciisioms  and  Inland  Revenue  Act 

'  The  Tiiiii-s  llislory  and  /;'ii,yi7,./',-,/i,i  ,1/  //,,-  ;/„r,  vni,  p   j.i. 


24 


BRrnSH    WAR    ADMINISTRATION 


of  1S70;  and  one  declarinjj  August  4,  r.  and  0  to  be  Bank  Holi- 
days, under  the  Hank  Holidays  Act  of  ISTI.  A  proclamation 
ol  Aufjust  4  called  nut  the  army  reserve  and  territorial  force, 
under  the  Reserve  h'orces  Act  of  1>S2  and  the  Territorial  and 
Reserve  l'\>rces  Act  (^f  I'.fOT.  Other  proclamations  were  issued 
on  Aujjust  ■.,  10  and  I'O.  under  the  Customs  and  Inland  Revenue 
Act  111   isTiP. 

So,  tiM),  an  Order  in  ("oimcil  of  Auj^ust  4,  provided  for  taking 
Cdntnij  (if  the  railroads  by  the  government,  as  authorized  bv 
the  Regulation  of  the  I'orces  Act  of  1>-71:  and  an  Order  in 
("oHiicil  of  August  ."..  established  prize  court  rules  under  the 
I'ri/e  Court  Act  of   1^1"  1. 

On  tlie  bas)^  oi  new  parliamentary  war  legislation  there  was 
issued  a  pniciaination  uiuler  the  Currencv  and  Ibnk  Notes  Act, 
and  on  September  17,  a  [iroclamation  under  the  Articles  of  Com- 
merce (  Returns,  etc  )  \ct  authori/mg  the  Hoard  of  Trade  to 
take  po>>e>sion  of  supplies  of  any  articles  of  commerce  which 
ucrc  being  uh  -MsonaMv  withheld  from  the  market. 

More  numerou>  were  the  detatied  reguIatioi;s  established  bv 
l.>rvlerN  ni  (.'ouncil  under  the  Alu-:-  Restriction  and  the  Defense 
ot  the  Realm  Act>.  I'he  or'  .  tirst  issued  on  August  .".  and 
1-.  were  amended  at'.d  aiiJaxl  :••  tr.'in  time  to  time.  An  .Miens 
Ke^ti  uiioii  lA'ovso'Kiatioii  !  (.>rJ,er  was  i-sued  Septemlier  ;', 
anJ  .1  Meien^e  oi  the  Reaii'.i  Kegrratio:!.;  i  Cvi'.solidati<.>n  i  Ordei 
on  \,'\em'.er  i'>..  I'hese  ii',  tv.rr-  have  Ven  frequently  amended 
aiki    >ii!'i''en!e'ne<.!.    and    at    iiitervaN    rew    c.'nso'idation   orders 


ha\e    ' 

iM.e.i 
.mie^v: 

I  ■ »      r     ,  •  \ 

M.i" 

^0|l•e 

ie''i:'-i' 


a' 


>. 


M  ' 


,!. 


xers 
Cr-e 


!--i;ei.! 

•e\\    !eg'-:a:' 
iie   ['r'.;e  »."  ■ 
'vir  .fd 
iA'-''er>   ■■■ 
re   'r-'-orM 
;:^  l''e    V'-e 


(."•rlier    i'.'ii-trat 
1-.  > 


wer 
Rules  av'. 


■^  >if  i.'^rders  in  Council 
.  :  Seprem'icr  :!o.  l;>14, 
rcvidiiii:  t.T  prize  c.nirts 


|\_-'.  .i. 


c  a'"a' 


■-  .v< 


u'-ci  a-e 
are  e^.te"'. 

lie  LVre-'-e  ■,-• 


iTii'aratively  brief :  but 
.'.  and  detailed  list<  of 
L'.-Kobdati  11  1  Order. 
■  the  Realm  >  ».".,'!!^>.di- 


a'ld  with  t! 


le  ad- 


.:;i>:i_-r^-. 


^>r'^  •w^%m'./^-^^^ 


FORMS    AND    AOEXCIKS    OF    Ai  TION 


25 


via-  of  tlu-  IViw  Council  aro  dated  from  rnickinoliain  Talac.-. 
and  are  snuposcd  to  he  formally  adopted  or  approvoii  at  a  incct- 
ni^'  oi  the  eoiincil  wlu-ro  the  Kin^  is  personally  present,  with  or 
uithnnt  nominated  councilors.  Hut  the  public  announcements 
do  nut  sliuw  wliat  persons  were  present.  Roval  I'roclamations 
are  si>;ned  in  tiie  name  of  His  Majesty.  Orders  in  Council 
are  sipied  l.y  the  Clerk  oi  the  Council    ( .Mmeric  Fitzrov). 

I'lven  less  is  publicly  known  as  to  who  are  in  fact  responsible 
tor  these  Royal  Proclamations  and  Orders  in  Council  L'nder 
the  usual  practice  oi  the  British  Covernment  thev  are  presumed 
to  have  been  approved  by  the  Cabinet,  i'.ut  untii  the  formation 
of  the  I.loyil  C.eorge  War  Cabinet  in  December.  liUi;.  there  was 
no  official  record  of  Cabinet  proceedings:  and  the  records  of 
the  new  Cabinet  have  not  been  published.  It  seems  probable 
that  for  many  of  the  rmclamations  and  Orders  in  Council  there 
has  been  little  or  no  dctailetl  discussion  in  the  Cabinet  There 
has  been  a  committee  on  the  defense  of  the  realm  recuiations. 
which  may  l>c  assumed  to  have  had  .  jjooil  deal  to  do  with 
formulating;  these  regulations.  In  other  cases  the  rules  and  rejj- 
ulations  have  been  drafteil  by  subordinate  officials  within  .1  par- 
ticular department,  and  iiresented  to  the  Cabinet  on  the  respon- 
sibility of  one  of  the  ministers. 


Orders  of  Council 

In  addition  to  the  Royal  IVoclamations  and  Orders  issued  by 
ant!  with  the  advice  of  the  Privy  Council  there  have  also  beeii 
Orders  of  the  Privy  Council,  dated  from  the  Council  Chambers 
at  Whitehall,  formally  adopted  at  coimcil  meeting's  at  which 
His  .Majesty  was  not  present.  These  Orders  oi  Council  have 
in  all  cases  been  issuetl  under  statutory  authoritv  to  (.arr\  out 
the  reconnnendations  of  a  pnernment  department;  and  have 
dealt  with  the  rej^ulation  of  foreij,'n  trade. 

Thus  the  Customs  (  l^xportation  Pr.ihibition)  .Act.  P.M  I,  ' 
amcndiu},'  section  .s  ,,f  the  Customs  and  Inlaiul  Revenue  .Vet.  au- 

'  4-5  Ciio.  V.  c.  04.     .\iiKust  J8.  I';i4. 


26 


BRITISH    WAK    ADMINISTRATION 


thi.rizinj;  the  prohibition  of  exports,  provided  that  any  procla- 
mation or  Order  in  Council  made  under  this  section  niav,  while 
a  state  of  war  exists,  he  amencLHl  or  added  to  hv  an  order 
made  hy  the  Lords  of  the  Council  on  the  recommendation  of  the 
Hoard  of  Trade.  Under  this  act,  an  Order  of  Council  of  August 
i'>.  r.M!.  extended  the  iiroclamations  of  August  ;5,  5  and  10, 
(issued  under  the  act  of  1>T'.>)  to  all  articles  durmg  the  war. 
Other  Orders  of  Council  of  Sejnemher  1.  S.  11.  l'.".  and  later 
made  further  amendments  to  these  proclamations,  withdrawing 
and  adding  to  the  list  of  articles  export  of  which  was 
proliil)ited.' 

L'nder  a  later  .Act  of  I'arlia:  ,eiit.  Orders  of  Council  were 
issued  iTohihiting  trade  with  specified  inisiness  firms  in  neutral 
C'lnntne-^.  iiecause  of  coiniections  with  encmv  merchants. 


Orders  of  His  Maji'sty 

Another  class  of  otVicial  acts  have  heen  orders  issued  in  the 
name  ^^i  His  .Majesty,  without  the  formal  advice  or  approval  nf 
ilio  I'rivy  Council.  Ihese  have  to  do  with  less  important  mat- 
ters than  tho.se  covered  In  Royal  I'roclamations  or  Orders  in 
•.'ouiicil:  and  these  Royal  Orders  have  in  all  cases  heen  issued 
utulcr  tlic  authoritv  of  Acts  oi  rarliament. 

1  Ini-.  i!i  accordance  w  ith  ]irovisions  of  the  Armv  .Act.  such 
v^r.lcr-,  were  i>-ued  on  Au^u.-t  1.  r.'U,  aiuhorieing  general  or 
liclil  I  liicfr>  ti.  iN.,ue  h'.lletitig  re<inisitions.  and  to  issue  rei[uisi- 
tioiiN  ,>i  cinergeMcv  tor  carnages,  aninuiN.  vessel-  aiivl  aircraft. 
\notlicr  -lup.lar  order  o;  \ugu-'  \'\  extei;ded  tlu  authoritv  to 
i->i:c  rcqirN'tion.  ,.t  enicrgency  to  include  f..-Kl,  forage  and 
--toi-e>  ,  '  e\cr\   ilc-cnj'tion 

\\  it'.lc  t'-u'-c  oricrs  were  i-sued  in  the  iMnic  ■  f  U\-  Maiestv. 
tliev  ucre  no;  cvcti  i.t-uiUs  .igned  !'\  tile  King:  !iut  all  ^<t 
th.o-e  a'io\e  niet-tioncd.  were  '"ued.  iirier  the  signature  oi  Lord 
Ki'dieiier,  the  >ecrct.ir\      •'  .-^^tate  fir  War. 


FORMS   ANO    \r.E\OIKS  OF   ACTION  27 

Dipartmcutdl  Orders  ,i;/,/  RcijuUutons 

Most  miiiieroiis  of  all  have  hecii  the  orders  aii<l  rejjulations 
isMK'il  in-  ami  in  the  name  o\  the  vari(His  goveniniciit  tlepart- 
MR-nts.  With  apparently  only  one  exception,  such  depart - 
incnial  orders  and  regulations  have  been  based  .mi  statutorv  au- 
thority, or  authorized  by  Orders  a  Council.  In  the  ear'-  ..avs 
of  the  war,  a  number  were  issued  on  the  authoritv  of  i)reviouslv 
existinj,r  lej,'islation :  but  the  greater  number  have  k-en  issued 
under  the  jirovisions  oi  the  new  war  lei^islation. 

Thus,  on  Aujjust  1.  l!"!  t.  the  Postmaster  C.cneral,  under  the 
Wireless  Telegraphy  (I"oreii,'n  Ships)  Ke.y;ulations,  IIMIS,  made 
by  him  under  the  Wireless  Tek\c;raphy  Act  of  \W\,  havinj; 
been  informed  by  the  Home  OtVice  that  an  emeri;:ency  had  arisen, 
gave  ])ublic  notice  that  the  use  of  wireless  telej^raphy  on  IkkihI 
f(ireij;ii  shijjs  in  British  waters  should  be  subject  to  rules  to  be 
issued  by  the  Ailmiralty  Ijoard.  Sd,  too.  on  Aujjust  l',  I'.ll  J,  the 
Home  Office,  as  authorized  Iv.  the  Aerial  Xavijjation  Acts  of 
1!M1  and  I'.llIS.  prohibited  the  navi},'ation  of  aircraft. 

.Among  the  dei)artment  regulations  issued  under  new  statutes 
may  1«;  noted  the  genera!  orders  under  the  Defense  of  the  Realm 
acts  and  food  orders  issued  by  the  I'ood  C<jntroller.  These  ami 
others  are  noted  in  later  chapters  of  this  report. 

.An  important  exception  to  the  almost  universal  rule  that  such 
(leiuirtmental  crders  were  based  on  statutorv  authoritv  was  a 
Treasury  Order  of  January  U.  lltI5,  torbiiUling  the  issue  oi 
new  capital  under  the  Companies  .Acts  without  the  consent  of 
the  Treasury.  The  issuance  of  this  onler  m  this  wav  has,  how- 
ever, been  severely  criticized. 


Tliis  cirdcr,  which  was  t,)lcrattHl  by  a  pii/^leil  tliiancial  wurld  as  Ik'ihk,  in 
thf  whole  necessary  and  desirable,  was,  in  fact,  tdtally  illegal,  and  it  oliiained 
its  sanction,  if  sanction  it  could  be  called,  in  a  most  ciirion--  way.  Hy  tile 
Stock  K.xchaiiKc  Loan  scheme,  formnlateil  by  the  Treasiiry  on  October  31. 
I')14,  the  Stock  i:xchanKe  agreed  with  the  Treasury  not  to  reopen  williout 
tlu-  consent  and  oidy  upon  t!ie  conditions  agreed  to  by  the  Treasury.  L'lider 
the  rcRulations  i--iie<l  in  pursuance  of  this  [lurely  private  aKreenieiil  ileabuKs 
in  new  issues  were  dependent  on    Treasury  approval,  and  so  the   irea^ury  '/.is 


i'*: 


•T<? 


im^^^^^ 


28 


BRITISH    WAR    ADMINISTRATION 


in  a  position  to  check  the  issue  of  new  capital  by  forbidding  quotations  on 
the  London  Stock  Exchange. 

The  fact  that  by  the  Government  War  Obligations  Act,  1914  advances  to 
members  of  the  Stock  Exchange  by  the  Hank  of  England  were  covered  by  a 
statutory  guarantee  may  be  said,  in  a  sense,  to  have  justified  the  order  but 
even  m  war  time,  it  woul.l  have  been  better  to  have  kept  within  the  limits' 
of  a  very  elastic  constitutional  system,  and  rot  to  have  relied  on  the  dis- 
pensmr  power  of  a  legislative  authority  which  tended  to  become  restive  under 
a  process  of  delegation  of  powers  which  in  the  early  decades  of  the  twen- 
tieth century  tended  to  reach  a  limit  beyond  which  the  wit  of  man  could 
scarcely  be  expected  to  go. 

...  The  issue  of  new  capital  at  the  time  required,  no  doubt,  regulation, 
but  that  regulation  should  have  been  made  by  Order  in  Council  under  the 
Defense  of  the  Realm  .Act.' 


Agencies  of  Action 

In  afldition  to  the  increasetl  activity  of  the  older  departments 
and  officials,  there  has  also  been  a  startling  development  in  the 
formation  of  new  governmental  agencies.  For  the  f^rst  two 
years  of  the  war,  these  were  for  the  most  part  in  the  form  of 
special  committees  and  commissions.  A  host  of  these  (more 
than  K(0)  have  been  established,  for  one  purpose  and  another. 
Many  have  been  of  an  ephemeral  character,  for  some  immediate 
investigation  and  report.  Others  have  been  more  lasting,  some 
only  as  advisory  bodies,  liut  a  number  have  been  vested  with 
executive  and  administrative  authority. 

The  vast  expansion  in  the  scope  of  governmental  action  has 
further  leil  to  important  internal  reorganization  in  some  oi  the 
<>I<ler  departments,  and  the  creation  of  new  divisions  and  sec- 
tions—  .,t  ti;  mention  the  enormous  increase  in  the  number  of 
officials,  both  central  and  local,  and  the  staff  employed. 

In  addition  to  all  this,  great  and  novel  developments  have 
taken  ])lace  outride  of  the  older  departments  of  the  govern- 
ment. This  new  stage  in  the  development  of  war  administra- 
tion was  begun  by  the  creation,  in  IIU.-..  of  the  War  Trade  De- 
partnifiit,  the  .Ministry  nt  Munitions,  and  the  Board  of  Control 
for  the  Licpior  Traffic.  Further  steps  in  the  same  direction  were 
taken,  at  the  end  of  I'.nc.  l,y  the  establishment  of  the  new  Min- 
'  Tlu-  Tim.s  llist.^ry  a>,d  lincx.-L>r.-dia  ../  "'.-  liar,  viii,  pp.  53-54. 


FORMS    AXD    AGENCIES    OF    ACTION 


29 


istnes  „f  I.\,ckI  Control,  Shippings  Control.  Pensions,  Labor. 
m..cka<le.  and  the  Air  Board:  and  to  these  were  added,  in 
II'IT,  new  departments  of  National  Service  and  Reconstruction. 
Still  more  significant  has  been  the  change,  which  has  well  lieen 
called  a  revolution,  in  the  central  organ  of  control  of  the  British 
(.overnment.  the  Cabinet.  Before  the  war  ihere  had  been  es- 
tablished a  Cabinet  conmiittee  on  imperial  defense,  which  soon 
after  the  beginning  of  the  contest  became  a  war  committee, 
'i'his  was  reorganized  towards  the  end  of  1!)1.-,  into  a  smaller 
War  Council,  for  directing  the  active  conduct  of  the  war  under 
the  su,,ervision  (,f  the  Cabinet.  In  the  reorganization  of  the 
government  when  Mr.  Lloyd  Cieorge  became  Prime  Minister  in 
December.  I'.iKi.  l„,th  the  War  Council  and  the  old  Cabinet 
were  replaced  by  a  new  War  Cabinet  of  five  members.  The 
composition  of  this  body  and  its  relations  to  the  Ministrv  and 
to  Parliament  show  vital  and  fundamental  differences  from  the 
former  established  conventions  of  the  British  constit"fion. 

A  further,  and  perhaps  even  more  important,  development  took 
place  early  in  P..  17.  At  the  time  of  a  .special  Imperial  War 
Conference  of  representatives  of  the  British  Government  and 
the  Dominions  and  India,  there  was  also  held  a  series  of  meet- 
ings ot  what  was  publicly  called  an  Imperial  War  Cabinet,  com- 
prising the  Prime  Minister  of  the  United  Kingdom,  with  the 
othe.-  memlK^rs  of  the  new  War  Cabinet  and  the  ministers  most 
directly  concerned  with  imperial  affairs,  and  also  the  Prime 
Mmisters  of  most  of  the  sHf-governing  Dominions  and  repre- 
sentatives trom  India.  Ic  -.as  decided  to  continue  this  Imperial 
Cabinet  as  a  permanent  feature  of  the  government  of  the  '•  Im- 
perial Commonwealth." 

All  of  the'^e  remarkable  changes  in  the  organization  of  British 
war  administration  will  be  examined  in  more  detail  in  later  sec- 
tions of  this  report.  But  it  is  of  special  importance  to  note  here 
that  both  of  the  last  menticjiied  and  most  radical  reconstructions 
of  the  governmental  system— the  formation  of  the  War  Cabi- 
net and  the  Imperial  Cabinet— have  been  accomplished,  in  pe- 
culiarly British  fashion,  by  an  entirely  informal  and  e.xtra-legal 


30 


BRITISH    WAR    ADMINISTRATION 


process.  No  Act  of  Parliament  has  l)een  passetl,  and  no  Order 
in  Council  or  Royal  Proclamation  has  l)een  issued,  estahlishiuR  or 
even  announcing  tht  new  machinery  of  government.  The  ex- 
istence of  the  new  War  Cabinet  may  be  ascribed  to  the  decision 
of  Lloyd  George,  in  the  process  of  constituting  the  new  govern- 
ment, and  the  change  was  accomplished  when  the  new  ministers 
accepted  their  j)osts  and  Parliament  silently  acquiesced  in  the 
result,  announceil  in  the  Prime  Minister's  first  speech  to  the 
House  of  Commons.  In  the  formation  of  the  Imperial  Cabi- 
net, the  new  body  itself  decided  that  it  should  be  a  permanent 
institution;  and  public  announcement  was  first  made,  not  by  or 
at  any  legalized  governmental  institution,  but  at  a  social  func- 
tion— a  dinner  to  the  delegates  attending  the  Imperial  Con- 
ference. 

Nevertheless,  the  new  institutions  are  related  in  fact  to  one 
of  the  oldest  parts  of  the  formal  machinerv*  of  the  British  Govern- 
ment. The  members  of  the  new  War  Cabinet  and  the  new  Im- 
perial Cabinet  are  all  members  of  the  King's  Privy  Council :  and 
these  new  bodies  will  thus  have  the  same  basis  as  the  old  Cabinet 
as  an  informal  and  e.xtra-legal  committee  of  the  Council. 


From  this  outline,  it  should  be  recognized  that  the  broad 
question  of  the  efifect  of  the  war  on  the  British  machinery  of 
public  administration  is  one  that  well  deserves  close  study  and 
investigation.  Many  of  the  changes  may  prove  but  temporary, 
and  after  the  war  a  return  to  older  methods  and  practices  mny 
be  anticipated.  Even  these  are  worthy  of  attention  as  important 
events  in  one  (jf  the  mo.st  stupendous  crises  in  history.  ]')Ut  some 
of  the  new  arrangements,  and  among  them  probably  the  most 
lundaniental,  are  likely  to  leave  a  permanent  impress  on  tlie 
British  Government,  and  to  form  landmarks  in  the  develoj)- 
nuMU  of  its  constitution  and  of  political  and  administrative  or- 
ganization throughout  the  world. 


CHAPTER  III 

The  Cabinet 

Diirinj;^  the  progress  of  the  war  there  have  been  a  remarkal)le 
series  of  developnients  in  the  Ikitish  Caliinet  and  .Ministry,  in- 
viilviiii,'  not  only  many  ehanges  of  personnel  hut  al>o  funda- 
mental alterations  in  the  constitution  of  the  Cabinet  and  its  re- 
lations to  Parliament. 


The  Liberal  Cabinet 

At  the  outbreak  of  the  war  a  Liberal  Cabinet  was  in  office. 
with  the  Right  Honoralile  Henry  H.  Asquith  as  Prime  Minister. 
]?ut  the  position  of  this  Cabinet  ditfered  from  that  of  the  con- 
ventional description  of  British  institutions,  in  that  the  Lil)eral 
])arty  did  not  have  a  majority  in  the  House  of  Commons.  In- 
deed the  two  leading  parties — Liberals  and  Unionists — were 
jjractically  equal  in  numbers.  But  the  Lil)eral  Cabinet  was  or- 
<liiiarily  supported  by  the  minor  parties,  the  Irish  Nationalists 
and  the  Labor  members. 

Several  Cabinet  changes  took  place  on  the  declaration  of  war. 
The  Prime  Minister  was  temporarily  .-serving  as  Secretary  of 
St;i  for  War;  and  this  position  was  promptly  given  to  Lord 
Kitchener,  the  best  known  military  commander  in  the  countrx , 
but  a  man  without  experience  as  a  Cabinet  me'-.-.'^T  or  in  active 
political  work,  and  not  ideiititied  with  any  political  partv.  This 
appointment  involved  a  departure  from  established  customs  in 
two  respects — in  admitting  to  the  Cabinet  a  nonparty  member, 
and  in  ])lacing  a  military  officer  at  the  head  of  the  War  Office. 

At  t!ie  same  time  two  !nenil>ers  of  the  Caljinet  and  one  under- 
secretary resigned,  because  of  their  objection  to  taking  an  active 
part  in  the  conduct  of  war.  The^e  were  \'iscount  Morlev,  Lord 
President  of  the  Council;  John  Bums.  President  of  the  Local 

31 


'•^  BRITISH    WAR    ADMINISTRATION 

Government  Board,  and  C.  P.  Trevelyan.  Under-Secretary  of  the 
Board  of  l-lducation. 

Outside  of  the  ministry.  J.  Ramsay  MacDonald  re>i},^ne(!  his 
position  as  chairman  of  the  parliamentary  Lahor  party,  hecanse 
his  views  on  war  were  in  conflict  with  the  attitude  of  his  party 
in  supporting:  the  war  jiolicy  of  th^  ^'overnment. 

While  the  Cabinet  remained  suhstant.ally  a  Liberal  Cabinet,  a 
party  truce  was  promptly  agreed  to,  on  the  basis  of  postponing 
action  on  controversial  party  questions.  A  letter  from  I'.onar 
Law,  leader  of  the  Opposition  Unionists,  to  the  Prime  Minister, 
assuring  him  of  the  su|)port  of  his  party,  was  published.  The 
customary  methods  of  parliamentary  opposition  and  criticism  in 
the  House  oi  Commons  were  thus  suspended;  and  for  some 
months  the  chief  and  almost  the  only  parliamentarv  criticism 
of  the  government  was  that  voiced  by  individual  niemljers  in 
the  House  of  Lords. 

Under  these  conditions  a  large  amount  of  emergency  legis- 
lation was  ranidly  passed  in  the  six  weeks  between  the  declara- 
tion of  war  ai::l  ;he  adjournment  of  the  regular  session  on  Sep- 
tember IS;  anu  this  was  further  supplemented  at  an  adjourned 
session  later  in  the  year  l!»14,  and  at  the  sessions  in  the  f.jllow- 
ing  years. 

I'larly  in  the  session  of  liU.-i,  action  was  taken  which  enipha- 
si-ed  the  control  oi  the  Cabinet  over  the  proceedings  in  Parlia- 
ment. On  b'ebruary  ;!  the  government  proposed  a  resolution 
taking  the  whole  time  of  the  House  of  Commons  for  its  measures 
until  further  notice. 


Iliis  iira>tii-  prod'cdiiiK  was  accepted  alm.wt  as  a  matter  ot  course.  Hut 
It  deserves  to  tie  noted  as  a  protninent  laiulinark  in  parliamentary  lii-tury. 
lor  tluniKli  tlie  so-called  "  iiarliamentary  initiative"  has  often  fallen  int.. 
practical  desuetude,  this  i.  pr.  hahly  the  t^rst  occasion  in  the  historv  of  any 
Parliament  in  which  it  has  been  formally  surrendered  for  an  indetinit'e 
period.' 

.Another  >igiiiticant  change  in  pn^Kedure  at  this  session  was 
that  the  envirniou-  vote-  oi  credit   for  war  purposes  now  ab- 

/'■/!.   !\'li;i,\}:  ijiu!'t,-r:y    \o,  0  .  May.  VnSi.  pp    14o,  ItiJ. 


THE    CABINET 


33 


sorlicd  the  ordinary  estimates  for  the  army  ami  navy.  Li  every 
liri-vidtis  war.  incliulinj,'  the  Xapulennic  wars,  the  votes  of  credit 
liave  represented  rouf;hly  the  dilTereiue  I>etween  war  expenditure 
and  normal  i)eace  expenditure.  Rut  the  army  and  navv  estimates 
were  now  dispen.sed  with  altogether,  except  tor  "  tokeri  "  esti- 
iM.iie  of  £1.(100  for  each  vote  and  fioo  for  each  appropriation  in 
aid.  as  a  matter  of  form;  and  In^th  normal  and  abnormal  ex- 
penditures were  to  lie  met  out  of  votes  of  credit.' 

As  the  session  of  l'.il.">  continued,  evidence  of  uneasiness  and 
dissatisfaction  appeared  lH)th  inside  and  outside  of  Parliament. 
I  he  (  ahinet  still  received  j^eneral  support,  and  there  was  no  open 
attempt  to  Idrce  its  retirement.  lUit  the  policy  of  the  Cabinet 
lacked  stability  and  certainty.  "  Wiiere  the  people  looked  for 
leader.-.hip,  they  found  the  old  inclination  :.>  wait  and  see." - 

111  tin-  all  important  matter  of  munitions,  the  S'^virnmi-nt  coiii-.-.seJ  and 
irril.itid  the  llou-o  liy  altcrnat-,-  complacency  .-.ml  panic:  in  the  matter  nf 
li(|uor  lliey  embarked  on  an  ill-considered  venture,  which  le,l  to  insloriou- 
surrender;  in  the  matter  of  alien  enemies  they  were  forced  into  a  reversal  of 
policy  l)y  popular  etTervcscence.  Tliese  mishaps  did  not  briuR  about  the 
chauKe  of  government,  but  they  went  far  to  convince  th  doubtful  that  a 
cliangc  was  inevitable.' 


The  resi<,Miation  of  Lord  Fisher  as  First  Sea  Lord  of  the  Ad- 
miralty, on  May  l.">.  brousjht  to  lij^ht  the  internal  difficulties  of 
the  f,'overnment ;  and  helped  ♦o  precipitate  the  crisis. 

No  formal  action  in  Farliamen.  preceded  the  change  of 
government:  and  what  took  place  in  private  and  informal  con- 
ferences will  not  he  fully  known  for  some  time.  But  it  has  been 
understood  that  the  Unionist  leaders  informed  Mr.  Asquith 
that  they  could  no  longer  maintain  their  attitude  of  restraining 
criticism  unless  important  changes  were  made.  As  an  outcome, 
a  reorganization  of  the  Cabinet  was  agreed  to.  Mr.  Asquith  re- 
maining as  Prime  Minister,  but  with  the  admission  of  a  num- 
ber of  Unionist  and  Labor  members,  forming  a  Coalition  Cabi- 

'  Ibid.,  pp.  14fi-l47. 

'  77ic  liiiics  Histor\  jnd  EttcxcL^fcdia  of  the  U\ir.  v.  ch.  90  p  319 

•  The  I'olilical  Quarterly,  No"  7  v. March,  1916),  p.  \Z2. 


34 


BRITISH    WAR    ADMINISTRATION 


net.  The  Irish  NationaHsts  were  also  offered  representation; 
but  declined  to  serve  so  long  as  Home  Rule  for  Ireland  was 
not  pui  into  effect. 

The  Coalition  Cabinet 

When   formally  constituted  the  new  Coalition  Cabinet  con- 
sisted of  twelve  Liberals,  eight  Unionists,  one  Labor  member 
and  Lord  Kitchener,  a  total  of  twenty-two  members,  an  increase 
of  two  over  the  old  Cabinet.    The  new  positions  were  the  newly 
created  Minister  of  Munitions  and  Lord  Lansdowne.  as  min- 
ister without  portfolio.     Unionists  were  assigned  to  a  number 
ot  important  departments:   A.  J.  Balfour  became  First  Lord  of 
the  Admiralty:  Bonar  Law.  Secretary  for  the  Colonies;  Austen 
Chamberlain.  Secretary  of  State  for  India:  VV.  H    Long   Presi- 
dent of  the  Local  Government  Board:  and  Sir  Edward  Carson 
Attorney  General.    The  Liberal  members  were  shifted  to  different 
posts:    Lloyd  George  was  transferred  to  the  new  Ministrv  of 
Munitions:  Reginald  McKenna  became  Chancellor  of  the'Px- 
chequer:  Sir  John  Simon.  Secretary  of  State  for  H.me  Affairs; 
Lord  Buckmaster.  Lord  Chancellor:    .ord  Crewe,  President  of 
the  Council:  Lord  Selborne.   President  of  uie  Board  of   Agri- 
culture and   Fisheries:  and   Winston  Churchill   was  given   the 
sinecure  post  of  Chancellor  of  the  Duchv  of  Lancaster.   In  Febru- 
ary, lino,  an  addition  was  made  to  the  Cabinet  bv  creating  a 
new  Ministry  of  Blockade.  '  . 

A  Coalition  Cabinet  of  this  kind  was  something  new  in  Brit- 
ish political  history.  There  have  been  Coalition  Cabinets  before  ■ 
but  they  had  Ix-en  only  partial,  and  none  had  gone  to  the  extent 
ot  absorbing  nearly  all  the  chief  political  leaders  of  the  different 
parties,  representing  .ss  per  cent  of  the  House  of  Commons 
and  thus  eliminating  the  organized  opposition.  Mr  \s„uith 
writing  to  the  Chief  Liberal  Whip,  said  uf  the  new  a^^n^^e- 
ments :  '^ 

The  transformation  implies  a  temporary  abandonment  „f  ,he   system  of 
party  government  winch  has  ever  since  18J2  dominated  our  political  arra"«e- 


,i  . 


THE    CABINET 


35 


ments  and  which  I  hold  to  be,  under  normal  conditinns.  the  best  adapted  to 
our  national  requirements.  .  .  There  is  one  reason  and  one  only  which 
cculd  justify  or  explain  such  a  new  dcparture-a  clear  and  urgent  case  of 
national  necessity." 


The  general  result  was,  however,  called  by  one  writer  a  com- 
bination of  Front  Bench  politicians  rather  than  a  national  Cabi- 
net in  the  wider  sense.  But  the  same  critic  considered  it  a 
definite  and  most  necessary  step  in  replacing  party  government 
by  a  government  for  war.  It  was  undoubtedly  stronger  than 
the  preceding  Liberal  Cabinet ;  but  it  was  "  too  much  to  e.xpect 
that  it  would  show  itself  permanently  more  efficient  than  its 
predecessor."  Its  membership  '•  was  limited  to  the  politicians, 
and  party  considerations  were  still  the  basis  of  it.;  composition:  " 
and  "it  was  likely  to  suffer,  even  more  than  its  predecessor 
from  its  own  unwieldy  bulk,  which  necessarily  hampered  the 
swift  decisions  of  a  Cabinet  in  time  of  war."  - 

Such  a  sweeping  reconstruction  of  the  Caliinet  and  Ministry, 
under  the  established  law  and  practice,  would  have  necessitated 
a  considerable  number  of  bye-elections,  to  permit  the  newly 
appointed  ministers  to  retain  their  seats  in  the  Hou.se  of  Com- 
mons. But  as  there  was  general  agreement  that  it  was  inad- 
visable to  hold  elections,  an  act  was  passed  suspending  the  law 
which  prevented  members  of  the  House  from  accepting  office. 

Later,  as  the  statutory  limit  for  the  duration  of  the  House 
of  Commons,  under  the  Parliament  .\ct  of  1!»1],  approached, 
a  bill  was  introduced  and  passed  extending  the  life  of  the  e.N- 
isting  House  for  a  few  months:  and  similar  measures  have  sub- 
sequently been  enacted  from  time  t.)  time,  so  as  to  avoid  a  par- 
liamentary election  during  the  war.  Local  elections  have  also 
been  suspended  in  the  same  way. 

The  Coalition  Cabinet  promptly  gave  evidence  of  a  more  ener- 
getic policy,  in  measures  for  the  creation  of  the  new  Ministry  of 
Munitions  and  the  Munitions  of  War  Act,  and  in  the  adminis- 
trative conduct  of  the  war.     But  disappointments  as  to  the  suc- 

'  The  Times  History  and  Encyclopedia  of  the  IVar.  v,  ch.  90,  p.  J16. 
Ibid.,  pp.  ,(14.  J20. 


na 


BKITISH    WAR   ADMINISTKATION 


cessful  progress  of  both  military  and  diplomatic  affairs  led  to 
gradually  mcreasing  diss,  .sfaction  and  criticism.  Paradoxi- 
ca  y  the  disappearance  of  any  formally  organized  opposition  was 
follovved  by  more  openly  expressed  opposing,  not  enough  to  be 
forrnidable.  but  troublesome  guerilla  attacks,  from  a  small  group 
of  doctrinaire  Radicals  and  avowed  Socialists.  Moreover  the 
growing  feeling  of  unrest  was  much  broader  than  the  avowed 
opposition. 

It  was  urged  that  the  Coalition  Government  was  defective  be- 
cause of  the  size  of  the  Cabinet,  its  composition,  and  the  character 
ot  the  Prime  Minister.  Members  of  all  parties  acknowledged 
that  the  Cabinet  was  too  large  for  the  most  effective  action. 
A  body  of  2;j  men  of  very  unequal  abilitv.  tired  by  their  de- 
partmental labors,  and  meeting  every  few  davs  for  a  couple 
ot  hours,  was.  indeed,  an  impossible  machinery  for  making 
war.  As  early  as  September,  lOl.-J.  the  London  Times  advo- 
cated a  smaller  Cabinet,  meeting  every  day.  and  relieved  from 
departmental  detail. 

In  fact  the  traditional  working  of  the  British  Cabinet  system 
had  already  been  altered  in  important  respects.  The  public 
suspected  that  specific  problems  were  referred  formally  to  Cabi- 
net committees  and  that  the  active  direction  of  affairs  was  in  the 
hands  of  a  small  group  within  the  Cabinet.  But  there  was  no 
definite  knowledge  of  the  extent  of  the  control  of  the  Cabinet 
over  Its  committees  or  over  the  dc  facto  directing  group. 

The  War  Committee 

On  November  2.  1915.  the  Prime  Minister  announced  that 
since  the  beginning  of  the  war  there  had  l^een  something  like 
hfty  different  committees  and  advisorv  bodies  formed  out  of 
the  Cabinet,  though  sometimes  with  outside  assistance  Of 
special  importance  had  l>een  a  fluctuating  bodv  to  which  bv  the 
consent  of  the  Cabinet,  questions  of  state  'and  quenions  of 
.strategy  had  been  delegated.     This  War  Committee  was  now 

'  The  Times  History  and  Encyclopedia  of  the  War.  x,  ch.  16J.  p.  328. 


THE    CABINET 


37 


to  be  established  on  a  more  formal  basis  and  to  be  limited  to 
five  or  six  members,  including  the  Prime  Minister,  the  Secretary 
of  State  for  War,  the  First  Lord  of  the  Admiralty,  the  Minister 
of  Munitions,  the  Secretary  of  State  for  the  Colonies  and  the 
Chancellor  of  the  Exchequer.  This  committee  should  have  a 
staff  of  naval,  military  and  diplomatic  advisers  and  have  the 
general  direction  of  war  measures.  The  Cabinet  at  large  was 
to  be  kept  informed  of  its  decisions  and  to  be  consulted  before 
any  new  departure  in  policy  was  undertaken. ' 

This  announcement  gave  some  satisfaction,  as  a  step  in  the 
right  direction,  though  criticized  because  the  committee  was  com- 
posed of  department  heads  who  would  be  occupied  with  depart- 
mental problems.  Two  members  of  the  Cabinet  resigned: 
Sir  Edward  Carson,  because  not  satisfied  with  the  Balkan  pol- 
icy, and  Mr.  Churchill,  as  he  was  omitted  from  the  War  Com- 
mittee. 

In  July,  1916,  the  size  of  the  War  Committee  wns  increased 
to  seven  by  the  addition  of  Lord  Curzon,  at  the  time  when  Mr. 
Lloyd  George  became  Secretary  of  War  and  Mr.  Montagu  suc- 
ceeded him  as  Minister  of  Munitions.  The  balance  of  parties 
in  the  committee  was  thus  preserved.  In  practice  the  Cabinet 
almost  automatically  ratified  the  decisions  of  the  committee;  but 
the  committee  itself  gradually  expanded  by  the  presence  of 
official  advisers  and  ministerial  visitors  until  it  became  almost 
as  cumbrous  a  body  as  the  Cabinet." 

Further  dissatisfaction  developed  with  the  acknowledged  fail- 
ure of  the  Dardanelles  expedition  and  the  internal  conflict  in 
the  Cabinet  on  the  question  of  compulsory  military  service.  A 
preliminary  step  in  this  latter  direction  had  been  taken  by  the 
passage  of  th-  National  Registration  Act  in  June,  I'JIS.  But  the 
first  compulsory  service  act,  for  unmarried  men.  was  not  intro- 
duced until  January.  1!)10.  This  led  to  the  resignation  of  Sir 
John  Simon.  Home  Secretary;  and  for  a  short  time  the  active 
opposition  of  the  Labor  and  Irish  Nationalists  in  Parliament 

'  77.*'  Political  (Jiwrl.'rly.  No.  8  (September,  1Q16),  p.  104.     Cf  The  Com- 
mittee on  liii|ienal  Dcteiise.  p   48i.  ' 

'  Tlw  Times  History  and  Emyclopedia  of  the  War.  x.  cli.  16J,  p.  JS4. 


38 


BRITISH    WAR    ADMINISTRATION 


appeared  probable;  but  the  Lalror  Ministers  .were  persuaded  to 
withdraw  their  resignations,  and  the  Nationalists  adopted  a  neu- 
tral policy  of  inaction,  since  the  measure  was  not  to  apply  to 
Ireland. 

Proposals  to  extend  the  application  of  conscription  developed 
further  disagreement  in  the  Cabinet,  and  when  a  compromise 
measure  was  presented  at  a  secret  session  of  the  House  of  Com- 
mons on  April  25,  so  much  dissatisfaction  was  disclosed  that 
the  proposed  bill  was  withdrawn  and  a  more  sweeping  measure 
introduced  early  in  May. 

The  hesitancy  and  delay  in  dealing  with  this  and  other  prob- 
lems led  to  a  growing  demand  for  a  more  positive  leadership  in 
the  government.     As  one  writer  stated : 

.A  coalition  government  above  all  others  should  avoid  the  appearance  of 
sectional  and  merely  departmental  activity.  In  other  words  the  Prime  Min- 
ister should  show  beyond  the  shadow  of  a  doubt  that  he  is  the  active  director 
of  affairs.  It  is  therefore  unfortunate  that  he  seemed  during  these  few  weeks 
to  withdraw  himself  from  the  eye  of  the  House  of  Commons.' 

But  it  should  also  be  noted  that  the  principle  upon  which  the 
coalition  was  based  called  for  a  general  agreement  on  all  im- 
portant questions  of  policy ;  and  to  have  forced  a  decision  against 
any  considerable  minority  would  have  involved  a  reconstruction 
of  the  Cabinet. 

In  spite  of  these  difficulties  the  Coalition  Cabinet  continued  in 
office,  with  minor  changes,  for  a  year  and  a  half,  until  Decem- 
ber, 10 1().    Its  record  has  Ijeen  summed  up  in  these  words  : 

The  Coalition  Government  proved  in  almost  every  sphere  of  war  direction 
and  war  administration  that  it  was  stronger  than  its  predecessor,  but  not 
strong  enough,  that  it  acted  more  swiftly,  but  yet  acted  too  late,  that  its 
measures  wer-  better  adapted  to  the  needs  of  the  time  than  the  measures  of 
the  hrst  year  of  the  war,  but  yet  were  almost  invariably  half  measures." 

The  Llovd  George  War  Cabinet  and  Ministry 

Towards  the  end  of  the  year  lltlO  there  was  another  general 
reconstruction  of  the  British  Cabinet  and   Ministry,  involving 


I  Vl''  ^"'''''■"'Q^arlerh,  \o,  7  (.March.  1916).  p 
/  he  I  lines  History  and  Encyclopedia  of  the  IVc 


,     146. 

ar.  X,  ch.  163,  p.  .i2S. 


THE    CABINET 


30 


not  only  numerous  changes  in  personnel  but  fundamental  altera- 
tions m  the  structure  of  the  Cabinet  and  in  its  relations  to  the 
House  of  Commons. 

As  in  the  case  of  the  reorganization  of  Mav,  H)15.  the  change 
was  not  preceded  by  any  formal  vote  of  the  House  of  Commons  • 
but  ,t  was  the  result  of  criticism  outside  of  Parliament  and  in- 
ternal disagreement  within  the  Coalition  Cabinet.  Dissatisfac- 
tion had  been  growing  more  acute  on  a  number  of  important 
problems,  including  the  most  effective  distribution  of  "man 
power,"  the  reorganization  of  the  Admiraltv,  more  active  con- 
tro  over  shipping,  and  questions  of  food  production  and  con- 
trol. The  London  Times  became  more  active  in  demanding  a 
sweeping  reorganization  in  methods  of  administration. 

Within  the  Cabinet  the  crisis  devel.jped  on  the  question  of 
administrative  reorganization.  Plans  were  proposed  for  reduc- 
ing the  size  of  the  War  Committt.  and  giving  it  more  definite 
authority  without  the  need  for  consulting  the  whole  Cabinet 
Ibis  might  have  i,een  agreed  to  without  a  general  recasting  of 
the  Cabinet  but  for  the  specific  proposal  that  the  Prime  Minis- 
ter should  not  be  a  member  of  the  War  Committee.  It  was  in- 
evitable that  Mr.  A.squith  should  not  agree  to  this;  and  when  an 
attempted  compromise  failed.  Mr.  Llovd  George  resigned  This 
was  promptly  followed  by  the  resignation  of  Mr.  A.squith  which 
necessarily  involved  the  whole  Cabinet. 

On  Asquith's  resignation,  the  King  first  turned  to  Mr.  Bonar 
Law.  the  recognized  leader  of  the  Unionist  partv.  as  Mr.  Asquith 
was  of  the  Liberal  party.  But  in  a  short  time  Mr.  Law  reponec! 
hat  he  could  not  form  a  satisfactorv  Ministrv.  Mr  Llovd 
(.eorge  was  then  called  on;  and  after  two  day;  presented  his 
proposed  Cabinet  and  Ministry,  which  then  took  office 


The  War  Cabinet 
In  the  new  Ministry  the  most  striking  feature  was  the  dis- 
appearance of  the  traditional  Cabinet  of  .lepartment  head,    and 
the  creation  of  a  distinctly  new  type  of  War  Cabinet  of  five 


\*.  'ma."  nsKai'v  iyMK,w*^ 


ms-''-^\j'wt-^' 


r«Xri?SST7iJT^ 


._  I  !■  ■       Jl       IIJ, 


40 


BRITISH    WAR    ADMINISTRATION 


members.  This  took  over  the  active  functions  of  the  former 
War  Committee;  but  instead  of  being  subordinate  to  the  Cabi- 
net, was  to  be  the  superior  directing  Ixxly  over  the  whole  group 
of  ministers.  This  War  Cabinet  was  composed  of  Mr.  Lloyd 
George,  the  Prime  Minister;  Lord  Curzon.  President  of  the 
Council;  Lord  Milner  and  Mr.  Arthur  Henderson,  ministers 
without  portfolio;  and  Mr.  B-nar  Law,  Chancellor  of  the  Ex- 
chequer and  leader  ot  the  House  of  Commons.  Onlv  the  last 
named  held  an  important" administrative  office;  and  this  Cabi- 
net of  five  were  to  give  their  entire  time  to  the  general  prob- 
lems of  the  war. 

E.xecutive  power  and  responsibility  was  thus  concentrated  in 
the  small  body  of  five  men.  in  place  of  the  unwieldy  Cal)inet  of 
2-.'>  administrative  officers  who  were  also  active  leaders  in  Par- 
liament. But  this  was  accomplished  by  attempting  to  separate 
the  functions,  formerly  combined  in  the  Cabinet,  of  executive 
control,  both  from  the  active  leadership  of  Parliament  and  from 
the  immediate  direction  of  administrative  action.  The  Prime 
Minister  ceased  to  \ye  the  L.-ader  of  the  House  of  Commons,  and 
attended  but  rarely.  In  a  few  months  Bonar  Law  retired  from 
the  War  Cabinet,  leaving  no  member  of  that  body  whose  regu- 
lar attendance  at  the  House  was  to  be  expected. 

The  concentration  of  authority  seems  to  have  been  generally 
approved ;  but  there  were  differences  of  opinion  as  to  the  form, 
and  as  to  its  effect  in  the  future.    One  writer  remarked : 

Everyone  expected  a  much  smaller  Cabinet:  few  imaRinc.l  that  he  would 
cut  It  down  to  five.  Twenty-three  was  a  monstrosity,  for  which  there  was 
no  excuse  and  no  palliation  save  that  the  party  politicians  could  not  bridle 
their  ambitions.  A  Cabinet  of  five  can  only  be  justified  as  a  temporary  war 
measure,  and  leaves  the  perpetual  problem  of  Inner  and  Outer  Cabinet 
iintduclud 

Hn  the  other  hand,  another  observer  has  written: 

The  time  imperatively  calls  for  Kovernment  by  a  siuKle  man,  assisted  by 
the  M.lest  expert,.  .  .  .  The  idea  of  KoverniiiK  a  country  l.v  a  committee  of 
men   «ho  nm-t   be  unanimous  m  all   their  decisions,   whether  they   number 

'  .\u.litoi  Tan'nm.  in  I-orl,u,jhtly  RccU-u:  January,  I'Jl?,  pp.  42-43. 


THE    CABINET 


41 


»> 


twenty -three  or  five  >s  monstrous.  After  all  joint  responsibility  in  accord- 
ance wth  cabinet  ficfon  means  irresponsibility.  Twenty-three  men  and 
even  five  men.  can  no.  think  and  resolve  alike  in  all  matter!  .  .  "  houeJ 
U  may  be  thought  that  a  war  committee  of  five  able,  hones,,  energ  tic  men 
who  are  equally  determined  to  wi,>  the  war,  is  an  ideal  body  f^r  exefcisL  the 
supreme  control,  a  dictatorship  .  .  .  ,s  inevitable.  .  .  ,  The  og.c  of  fern? 
must  place  the  conduct  of  the  war  into  the  hands  of  a  single  ma,  although 
>s  supremacy  may  be  disguised  by  giving  him  a  number  o'f  coTle  gu  s   w£ 

:"  gTne';;ro:ab.y ";::;: f^'""^-- ''-  -—-  ^y  ^^^-^^  -ie.; 

In  connection  with  thi.s  feature  of  the  new  War  Cabinet 
notice  may  he  taken  of  the  nature  of  changes  in  some  of  the 
other  countries.  In  France  there  has  also  been  a  small  war  com- 
mittee or  council  created;  !,ut  this  has  been  composed  of  the 
heads  of  the  administrative  departments  most  directiv  involved 
m  the  conduct  of  the  war;  while  parliamentary  commissions  have 
actively  cooperated  with  the  Cabinet.  In  German  v.  where  the 
Chancellor  has  l,een  nominally  the  sole  minister,  but  whose  au- 
thority has  apparently  been  limited  by  the  decisions  of  the  heads 
of  the  military  departments,  there  have  been  some  steps  taken 
towards  at  least  the  form  of  consultation  with  the  Reichstag 
and  a  committee  of  that  body. 

It  may  also  be  noted  that  the  new  War  Cabinet,  like  the  War 
Comniittee,  but  unlike  the  former  Cabinet,  while  meeting  in  pri- 
vate, has  Its  own  secretarial  staff  and  has  formal  records  of  its 
proceedings.  The  secretariat  consists  of  a  secretary  and  ten  as- 
sistant secretaries,  and  a  total  staff  of  about  40  persons.  Their 
duties  are  to  keep  records  of  the  proceedings,  to  transmit  deci- 
sions to  departments  and  officials,  to  prepare  agenda  papers,  to 
attend  to  correspondence  and  to  prepare  reports.  Thev  also 
serve  at  interallied  conferences,  the  Supreme  War  Council,  the 
Imperia.  War  Cabinet  and  subcommittees.  There  are  also  a 
numlx-i  of  liaison  officers,  connecting  the  War  Cabinet  with  all 
department.s  of  the  government,  and  a  small  secretariat  to  the 
Prime  Minister.' 


;  Politicus.  iu  r,,rlm,,hily  Review.  Januarv.  1917,  pp 
I  he   liar  iahmet.    Report  for  the    VV„r  Ys/t 


22-23. 


Debates.  1917.  vol.  91 :  598. 


PP-  ^-4;  Parliamentary 


42 


BRITISH    WAR   ADMINISTRATIOK 


The  Ministry 

The  formation  of  the  new  War  Cabinet  did  not  abolish  the 
ministerial  positions  at  the  head  of  the  administrative  depart- 
ments. But  it  materially  altered  the  status  of  these  ministers; 
and  other  important  changes  were  made  in  the  constitution  of 
the  Ministry.  Ministers  are  freed  from  considering  general  ques- 
tions of  policy ;  and  are  thus  able  to  devote  mc-e  time  to  the  ad- 
ministrative duties  of  their  offices. 

In  the  matter  of  party  representation  both  the  War  Cabinet 
and  the  Ministry  preserved  the  form  of  a  coalition.  In  the  War 
Cabinet.  Mr.  Lloyd  George  was  a  Liberal,  Mr.  Henderson  a 
Labor  member,  and  the  other  three  were  Unionists.  In  the 
larger  Ministry,  the  number  of  Unionists  and  Labor  members 
was  increased;  and  while  there  was  a  considerable  number  of 
Liberal  ministers,  none  of  the  most  prominent  Liberal  members 
of  the  .-^squith  Cabinets  remained  in  office.  Moreover  there 
was  a  significant  appearance  of  men  of  business  rather  than 
parliamentary  experience,  some  of  whom  could  not  be  definitely 
assigned  to  any  of  the  regular  parties.  The  new  government 
was  thus  a  coalition  including  more  than  party  elements. 

On  the  other  hand,  the  organization  of  the  new  Ministry  was 
followed  by  the  reappearance  of  a  formal  opposition.  Mr.  As- 
quith  and  his  leading  supporters  took  their  seats  in  the  Opposi- 
tion benches,  where  their  attitude  towards  the  government  has 
been  similar  to  that  of  the  Ljiionists  towards  the  Liberal  Cabi- 
net during  the  first  period  of  the  war. 

While  the  new  Cabinet  was  much  smaller  than  the  old,  the 
new  Ministry  was  larger.  A  series  of  new  ministers  was  ap- 
pointed, and  (jfovision  was  made  later  for  new  departments, 
and  a  considerable  addition  was  made  to  the  number  of  parlia- 
mentary secretaries,  both  in  the  old  and  new  departments.  The 
new  ministries  included  Ministers  of  Labor  and  Pensions,  a 
Food  Ciintrolier  and  a  Shipping  Controller.  An  Air  Roard 
was  also  created.  Later,  additional  Ministers  of  National  Serv- 
ice and  Reconstruction  were  appointed. 


THE   r-ABINET 


43 


Altogether  the  new  Ministry  formed  a  total  of  88,  nearly 
double  that  of  prewar  ministries.  Of  these  00  were  members 
of  the  House  of  Commons,  2;J  were  members  of  the  House  of 
Lords,  and  5  were  not  members  of  either  House.  '  The  influ- 
ence of  (iO  salaried  officials  of  the  Ministry  as  members  of  the 
House  of  Commons  may  well  become  an  appreciable  factor  in 
controlling  a  majority  of  votes  in  that  House  to  sustain  the 
government. 

The  declining  importance  of  the  House  of  Commons  is  fur- 
ther indicated  by  the  lack  of  attention  given  to  it  not  only  by 
the  members  of  the  War  Cabinet  Irat  also  by  the  ministers. 
This  is  indicated  by  the  number  of  ministers  not  members  of 
either  House,  these  departments  being  represented  only  by  un- 
<ler-secretaries.  But  even  the  ministerial  members  of  the  House 
have  often  been  absent.  It  was  pointed  out  that  during  the  de- 
bate on  a  Consolidated  Fund  Bill,  there  was  no  one  in  the  Govern- 
ment Front  Bench  except  a  Junior  Lord  of  the  Treasury  and 
later  the  Chief  Secretary  for  Ireland.  ■ 

Under  these  circumstances  attendance  and  interest  in  the  pro- 
ceedings of  Parliament  have  declined.  Important  bills  have 
been  discussed  on  behalf  of  the  government  by  comparatively  un- 
known men.  The  most  prominent  speakers  have  been  former 
Liberal  ministers,  formally  in  opposition,  who  after  presenting 
their  arguments  do  not  appear  on  the  division  lists.  The  second 
reading  vote  on  a  New  Ministries  Bill  (to  establish  the  Minis- 
try of  Reconstruction)  was  carried  by  a  vote  of  only  92  ayes 
to  30  noes. 

More  than  one  British  writer  has  publicly  called  the  new 
governmental  arrangements  a  constitutional  revolution.  The 
general  results  have  been  summed  up  in  these  words,  by  Sidney 
Low: 

For  the  ministerial  and  administrative  Cabinet  collectively  responsible  to 
Parliament,  officered  and  recruited  entirely  from  the  parliamentary  circle, 
intimately  related  to  the  House  of  Commons,  framed  on  rigid  party  lines. 


'  Herl)c-t  Samuel,  in  ParVtamenlarx  Ddnitcs.  1917,  vol  %:  1609. 
'  I'arliamcutary  Prbatcs.  1917.  vol.'".':  1,^7. 


44 


BRITISH    WAR   ADMINISTRATION 


and  conferring  with  absolute  secrecy,  we  have  a  Cabinet  which  is  not  a 
Ministry  and  a  Ministry  which  is  not  a  Cabinet;  a  Cabinet  which  directs 
but  does  not  administer;  a  Ministry  which  has  exchanged  collective  responsi- 
bility for  individual  responsibility;  a  Cabinet  which  has  a  very  loose  con- 
nection with  the  House  of  Commons,  and  for  some  purposes  is  virtually 
independent  of  it;  which  stand-  jtside  our  party  divisions;  which  admits 
to  Its  confidential  deliberations  representatives  of  all  the  great  States  of  the 
Empire  as  well  as  those  of  the  United  Kingdom;  and  which  still  holds  pri- 
vate, but  no  longer  in  the  strictest  sense  secret,  meetings. 

Like  most  revolutions  it  is  really  the  result  of  a  long  process  of  evolution. 
...  The  Inner  Cabinet  had  long  existed  in  a  more  or  less  unacknowledged 
form.  Mr.  Asquith  regularized  the  Inner  Cabinet  and  gave  it  definite  status 
as  the  War  Cahmet.  and  he  made  a  step  towards  abolishing  the  secret  con- 
clave by  provi      g  this  committee  with  a  secretary. 

Parliamentary  control  had  persisted  in  form,  but  had  been  sensibly  relaxed. 
The  war  which  conferred  quasi-autocratic  authority  on  the  Executive  dimin- 
ished it  still  further;  and  the  formation  of  the  Coalition  reduced  it  to  a 
shadow.  This  also  went  far  to  release  the  Cabinet  from  the  party  system 
and  paved  the  way  for  a  government  in  which  that  system  is  ignored.' 

Still  another  constitutional  development  of  first  importance, 
not  only  for  the  Government  of  the  United  Kingdom  but  for 
the  loose  aggregate  of  British  Governments  vaguely  styled  the 
British  Empire,  was  the  sessions  in  the  spring  of  1917  of  what 
was  called  the  Imperial  Cabinet.  This  was  from  one  point  of 
view  an  expansion  of  the  War  Cabinet  formed  in  December. 
lOlfi;  but  in  other  respects  may  be  considered  to  have  developed 
from  an  earlier  Cabinet  Committee  on  Imperial  Defense. 

Committee  on  Imperial  Defense 

In  ISO.-i  a  national  defense  committee  of  the  Cabinet  had  been 
set  up,  with  the  Prime  Minister  as  chairman.  In  190-1.  after  the 
South  African  war.  this  was  reorganized  by  the  Balfour  admin- 
istration as  a  Committee  on  Imperial  Defense.  As  reconsti- 
tuted this  consisted  of  the  Prime  Minister  as  chairman;  the  Sec- 
retaries of  State  for  War.  Foreign  Affairs.  India  and  the  Col- 
onies: the  Chancellor  of  the  Exchequer;  the  First  Lord  of  the 
Admiralty;  the  Chief  of  the  General  Staff;  the  First  Sea  Lord; 
the  Directors  of  Xaval  and  Military  Intelligence,  with  Viscount 

'  Fortnightly  Review,  February,  1917.  pp.  214-215. 


_    .:£'m 


THE    CABINET 


45 


Esher  and  Field  Marshal  Lord  Nicholson.  Other  high  imperial 
and  colonial  officials  were  called  into  the  council  as  occasion  re- 
quired. Records  were  kept  of  its  conclusions  and  of  the  reasons 
on  which  they  were  based.  ' 

The  establishment  of  this  committee  was  formally  approved 
l)y  the  House  of  Commons.  While  it  in  no  way  limited  the 
responsibility  of  the  Cabinet  as  a  whole,  it  provided  machinery 
by  which  the  military  policy  of  the  country  might  be.  so  far  as 
possible,  continuous,  and  based  upor  the  authority  of  the  most 
competent  experts. 

Sessions  of  this  committee  were  held  during  the  Imperial  Con- 
ferences of  1!)09  and  1!)12;  and  in  the  latter  year  Mr.  Asquith 
explained  its  organization  to  the  House  of  Commons.  The  full 
committee  met  on  an  average  six  or  seven  times  a  year.  There 
were  four  permanent  committees  in  constant  session :  on  home 
ports  defense,  on  overseas  defense,  on  the  coordination  of  ac- 
tion at  the  outbreak  of  war,  and  on  air  matters.  There  were 
also  other  committees  on  internal  and  overseas  transport,  wire- 
less telegraphy,  maintenance  of  commerce  and  censorship  in  time 
of  war.  After  this  statement  another  subcommittee  was  or- 
ganized on  possible  invasions  or  raids.^ 

This  committee  had  been  active  in  formulating  military  policy 
and  making  plans  and  preparations  for  war.  With  the  outbreak 
of  the  present  war,  its  activities  increased,  and  its  membership 
tended  to  enlarge.  A  list  of  those  who  usually  attended  the 
meetmgs  in  VJU>  includes,  besides  those  noted  above,  the  Min- 
ister of  Munitions,  the  Lord  President  of  the  Council,  the  per- 
manent Under-Secretary  of  State  for  Foreign  Affairs,  the 
Second  Sea  Lord  of  the  Admiralty,  the  Chief  of  the  Admiralty 
War  Staflf.  the  Director  of  Military  Operations,  the  Inspector 
General  of  Overseas  Forces,  and  Admirals  Lord  Fisher  and 
A.  K.  Wilson— making  a  total  of  about  twenty.^ 
From  its  membership  this  committee  must  have  dealt  to  a 

'  Cnnslilutifliial  Year  Pooh.  1916,  pp  20  67 
'  lintisii  imperial  Calendar,  1916,  p.  365. 


^■i^MV 


46 


BRITISH    WAR    ADMINISTRATION 


large  extent  with  questions  of  administration  and  the  execution 
of  policy. 

The  Imperial  Cabinet 

Some  steps  taken  earlier  in  the  war  foreshadowed  the  Im- 
perial Cabinet  of  1!)17.  In  July.  1!)15.  a  meeting  of  the  Cabi- 
net was  attended  !)y  Sir  Rol)ert  Borden.  Prime  Minister  of 
Canada.  In  March,  l!>lti.  a  Ca?)inet  meeting  was  attended  by 
Mr.  \V.  M.  Hughes.  Prime  Minister  of  Australia,  who  had  come 
to  Great  Britain,  after  recent  conferences  with  the  Prime  Min- 
isters of  New  Zealand  and  Canada.  '  These  two  isolated  and 
apparently  unpremeditated  incidents  prepared  the  way  for  the 
more^  general  admi.ssion  of  representatives  of  the  dominions  to 
the  Cabinet. 

In  December,  l!»ifi,  after  the  formation  of  the  Lloyd  George 
Cabinet  and  Ministry,  the  British  Government  invited  the  gov- 
ernments of  the  overseas  dominions  and  India  to  a  special  war 
conference,  in  connection  with  which  there  should  be  held  a 
continuous  series  of  meetings  of  the  new  War  Cabinet,  of  which 
for  this  conference  the  Prime  Ministers  of  the  Dominions  should 
be  members. 

The  conference  was  held  during  March  and  April,  1917, 
including  representatives  from  Canada,  Newfoundland.  New 
Zealand  and  South  Africa,  and  also  from  India.  All  the  self- 
governing  Dominions  were  represented,  except  Australia,  where 
a  parliamentary  election  required  the  presence  of  the  ministers  at 
home.  The  Secretary  of  State  for  the  Colonies  presided ;  and 
other  ministers  and  permanent  officials  of  the  United  Kingdom 
attended,  but  not  the  Prime  Minister  nor  other  memi)ers  of  the 
War  Cabinet.  This  conference  considered  political  and  com- 
mercial matters  of  joint  concern ;  its  proceedings  were  reported 
and,  in  part,  made  public:  but  like  previous  Imperial  Conferences 
it  was  only  an  advisory  botly  with  no  positive  authority.  = 

During  the  same  period,  meeting  as  a  rule  on  alternate  days 
to  the  Imperial  Conference,  were  held  the  sessions  of  the  Im- 

l  ll'f  ■^'■'"'•■s  rfist.ny  and  Encyclopedia  of  th,'  War.  x,  ch.  16J  -p  341 
bidiicy  Low.  in  \mcteciith  Century.  August,  1917,  p.  234. 


THE    CABINET  47 

perial  War  Cabinet.  This  included  the  Prime  Minister  and  the 
other  members  of  the  War  Cabinet ;  the  Secretaries  of  State  for 
India  and  the  Colonies ;  and  also  Sir  Robert  Borden,  Prime  Min- 
ister of  Canada;  Wm.  Massey  and  Joseph  Ward,  Premier  and 
Finance  Minister  of  New  Zealand;  Sir  Edward  Morris  from 
Newfoundland;  General  Smuts  from  South  Africa,  and  the 
Maharajah  of  Bikanir  and  Sir  S.  I'.  Sinha  from  India.  The 
representatives  of  India  and  the  Dominions  were  not  merely 
witnesses  and  advisers,  but  in  effect  ministers  without  port- 
folio, deliberating  under  the  privy  councilor's  oath. 

No  official  report  of  the  meetings  of  the  Imperial  Cabinet  has 
been  published;  but  it  was  announced  that  at  the  final  session 
the  Prime  Minister  proposed  that  meetings  of  an  Imperial  Cabi- 
net should  be  held  annually,  or  at  any  intermediate  time  when 
matters  of  urgent  imperial  concern  require  to  i)e  settled. 

The  Imperial  Cabinet  will  consist  of  the  Prime  Minister  of  the  United 
Kingdom  and  such  of  his  colleagues  as  deal  specially  with  imperial  affairs,  of 
the  Prime  Minister  of  each  of  the  Dominions,  or  of  some  specially  accredited 
alternative  possessed  of  equal  authority,  and  of  a  representative  of  the  Indian 
people  to  be  appointed  by  the  Government  of  India.' 

In  the  concluding  resolutions  of  the  Imperial  Conference,  it 
was  voted  that  the  readjustment  of  constitutional  relations  of 
the  British  Governments  should  be  postponed  to  a  special 
Imperial  Conference  to  be  called  after  the  war;  and 

that  any  such  readjustment,  while  thoroughly  preserving  all  existing  powers 
of  self-government  and  complete  control  of  domestic  aflfairs.  should  be  based 
upon  a  full  recognition  of  the  Dominions  as  autonomous  nations  of  an  Impe- 
rial Commonwealth  and  of  India  as  an  important  portion  of  the  same,  should 
recognize  their  right  to  an  adequate  voice  in  foreign  policy  and  in  foreign 
relations:  and  shoidd  provide  effective  arrangements  for  continuous  con- 
sultation in  all  important  matters  of  common  imperial  concern  and  for  such 
necessary  concerted  action  founded  on  consultation  as  the  several  govern- 
ments may  determine. 

A  second  meeting  of  the  iniijerial  Cabinet  in  June,  1918,  marks 

another  step  towards  establishing  annual  meetings  of  this  kind 

as  a  recognized  convention  of  the  British  imperial  constitution.' 

'  J.  B    Firth,  in  l'ortniqhtl\  Rcviexv.  .August,  1917.  p.  196 
'  Political  Science  Quarterly,  vol.  33,  pp.  378,  394. 


■^P- 


..-^^  : 


48 


BRITISH    WAR    ADMINISTRATION 


These  developments  mark  important  steps  in  the  reconstruc- 
non  of  the  constitution,  both  of  the  United  Kingdom  JZt 
has  been  formally  called  the  British  "  Imperial  Common^.a;;!;  '• 

further  "i  ''  '       V""'''  ^'"^''°'"  ''^  *^""«^"^^'-  i»  i"''icates  a 
ne  tto  heT       '    T  '''  '"''''''''''  -^P°"-'^i"ty  of  the  Cabi- 

the  neu   War  Cabmet  .s  but  slight.     The  House  did  not  vote 
-W  Asquuh  out;  nor  did  it  vote  in  Lloyd  George  and  his  asso- 

he  Cabmet  of  the  Un.ted  Kingdom,  how  much  less  likelv  is  it 

Parrment!     .r:   'T''''^   ^^'^'"^^'     "°^^  ""   ^^e   British 
Pari  amem  be  the  final  authority  in  deciding  policies  which  will 

be  framed  and  executed  in  part  by  statesmen  in  no  wav  respon- 

s.ble  to  Br.t.sh  or  Irish  electorates'     It  would  seem  to  l"Tm- 

«:  r  wLf '  'r'"t  T""^""^"^  ^°  ^-^^^^'^  ^-^-^-e  control 
over  wliat  m  eflfect  will  be  an  international  executive 

In  the  direction  of  imperial  organization,  the  new  Imperial 
Cab.net  .s  estabhshed  as  the  corner  stone  of  the  new  svsLm 

■favor  of  r  '''°^"'"^  ^"'^  ^''  ^'^°^^  °PP°^^^  «"d  those  in 

favor  of  an  orgamzation  based  on  the  federal  idea,  that  the  steps 
aken  s,gn.fy  that  the  development  is  proceeding  on  lines  a  I 
from  the  plan  of  an  imperial  federation 

n..^^M?''^^"''  ^'''^^'"'  ''™''"^  ^^  *°  '^°^^-  ^^e  Imperi.  1  Cabi- 
net shall  he  held  responsible  and  to  whom. 

1.  1.  marked  another  change  in  political  institutions  of  the  high- 

leverTTllrrr  "'''  "'"""""^  '''''''  ""  "^^  --"^""^  ^^  the 
several  Ali.ed  Governments.    But  an  international  agencv  of  this 

k.nd  hes  outs.de  of  the  scope  of  this  study:  and  an  analvsis  o 
s  actual  and  probable  results  belongs  rather  to  the  field'of  in- 
ternational  problems. 

JLTnf""  ''''"'''^■^''-^  Cabinet  and  Ministry  has  been  more 
actne  and  aggressue  than  the  Coalition  Ministrv.  It  has  held 
almost  dady  sessions,  holding  300  meetings  during  the  year  1917 


THE   CABINET 


49 


At  these  meetings  many  other  persons  than  the  members  of  the 
War  Cabinet  attend.  The  Secretary  of  State  for  Foreign  Af- 
fairs, the  First  Sea  Lord  of  the  Admiralty  and  the  Chief  of  Staff 
attend  every  meeting,  to  communicate  the  latest  intelligence  in 
regard  to  the  war  and  to  consult  on  questio  •  which  arise  from 
day  to  day.  Most  meetings  are  also  attended  by  other  ministers 
with  department  officials  and  experts.  A  total  of  248  persons 
other  than  the  members  of  the  War  Cabinet  had  attended  meet- 
mgs  up  to  the  end  of  December,  1917. 

At  these  meetings  questions  of  general  policy  are  considered; 
and  problems  of  overlapping  and  conflicting  jurisdiction  are  de- 
termined or  coordinated.  A  considerable  number  of  questions 
have  been  referred  to  individual  member-  of  the  War  Cabinet, 
or  to  committees  of  ministers  or  other  persons— in  some  cases 
with  power  to  decide,  in  others  to  investigate  and  report.  ' 

The  new  system  of  government  resulted  in  more  prompt  and 
decisive  action  in  a  number  of  matters.  The  creation  of  new 
ministries  showed  an  attempt  to  meet  the  pressing  problems  of 
the  war  by  new  administrative  machinery.  Some  effort  was 
made  to  deal  with  the  troublesome  question  of  Ireland.  The 
problem  of  parliamentary  reform  was  taken  in  hand  and  the 
bold  decision  to  call  an  Imperial  Cabinet  marked  an  important 
step  towards  a  more  effective  organization  of  the  Empire. 

At  the  same  time  there  has  been  evidence  of  internal  difficul- 
ties and  some  criticism  of  the  new  machinerv:  and  a  number  of 
changes  have  been  made  in  the  War  Cabinet  and  also  in  the  Min- 
istry. In  May.  1!)17.  Mr.  Henderson,  the  Labor  member  in  the 
War  Cal)inet.  was  replaced  by  Mr.  Barnes,  while  the  former  was 
on  a  mission  to  Russia :  and  after  his  return  differences  with  his 
colleagues  led  to  the  definitive  retirement  of  Mr.  Henderson  from 
the  government.  It  appeared  that  even  before  the  critical  point 
had  been  reached.  Mr.  Henderson  had  not  been  freelv  admitted 
to  meetings  of  the  Cabinet:  but  his  resignation  emphasized  the 
cominuation  of  the  principle  that  the  members  of  the  Cabinet 
must  be  unanimous  in  their  public  expressions. 
'  The  War  Cabinet:  Report  for  the  Year  I'.m,  pp.  2-4. 


50 


BRITISH    WAR   ADMINISTRATION 


On  the  other  hand  the  resignation  of  Austen  Chamberlain  as 
Secretary  of  Mate  for  India  (in  July,  loiT).  on  the  adverse 
report  o   an  investigation  into  the  first  Mesopotamian  campaign 
md.cated  that  outs.de  of  the  new  Cabinet  the  individual  respo^: 
s.b,  ,ty  of  ministers  was  tending  to  replace  the  collective  respon- 

cltll    ,  M-^'°"P-     ^  '"'''  °^  '"^P^^'^^  changes  in  Lth 
Cab  net  and  Ministry  was  made  at  that  time.    Mr.  Bonar  Law  re- 
tired from  the  War  Cabinet.  tho„gh  continuing  as  Chancellor  of 
he  Exchequer,  and  Sir  Edward  Carson  was  transferred  from 
the  Admiralty  to  the  Cabinet-changes  which  further  weakened 
the  connection  between  the  Cabinet  and  the  House  of  Commons 
Several  other  changes  were  made  in  the  Ministry,  including  the 
return  of  Winston  Churchill  to  office  as  Minister  of  Munitions 
n  the  spring  of  1918  some  further  changes  were  made.    Lord 
Milner  became  Secretary  of  State  for  War:  and  his  place  in  the 
War  Cabinet  was  given  to  Austen  Chamberlain.     Some  other 
ministerial  changes  were  made  at  the  same  time 

In  Parliament  Mr.  Law  has  not  proven  a  supreme  leader;  and 
on  several  occasions  Mr.  Asquith.  from  the  Opposition  bench 
demonstrated  his  continued  leadership  of  the  House,  and  saved 
the  government  in  critical  situations.  But  in  May.  1918.  on  a 
motion  by  Mr.  Asquith  to  appoint  a  select  committee  to  investi- 
gate certain  charges,  the  House  of  Commons  upheld  the  Lloyd 
George  government  by  a  vote  of  29.3  to  lOG.  But  this  vote 
showed  a  large  number  of  absentees,  indicating  that  manv  mem- 

,r.fi    .     Tu'"^  '°  ''"''  ''"'  '^'  '^''"*^"->-  ''■'''  "»t  altogether 
satisfied  with  the  situation. 

The  meetings  of  the  Imperial  Cabinet  involved  a  considerable 
addmon  to  the  group  of  five,  which  had  been  supposed  to  Ix-  an 
deal  number  for  securing  prompt  and  eflfectiv-e  decisions.  After 
he  other  colonial  ministers  had  departed.  Cieneral  Smuts    the 

of  the  War  Cabinet   and  this  gave  rise  to  question  in  the  House 
of  Commons  as  to  his  status  in  the  government 

Practical  experience  has  also  indicated  that  it  is  difficult    if 
not  impossible,  to  divorce  general  policy  from  questions  of  ad- 


THE    CABINET 


51 


ministration.  Lord  Curzon  admitted  in  the  House  of  Lords  that 
most  of  the  time  of  the  War  Cabinet  was  occupied  in  the  adjust- 
ment of  internal  disputes  between  the  ministers.  New  depart- 
ments, boards,  commissions  and  committees  continued  to  be  es- 
tablished, until  the  total  number  was  more  than  400 ; '  and  it  lie- 
came  evident  that  the  multiplication  of  such  agencies  raised  as 
many  problems  as  it  solved.  Questions  arose  as  to  the  jurisdic- 
tion of  the  Food  Controller  and  the  President  of  the  Board  of 
Agriculture.  The  Ministry  of  .Munitions  became  in  large  part  an 
extension  of  the  former  lalx>r  conciliation  department  of  the 
Board  of  Trade.  Yet  a  new  Ministry  of  Labor  was  created.  The 
director  of  the  new  department  of  National  Service  resigned  lie- 
cause  he  had  nothing  to  do.  The  Reconstruction  Committee 
practically  abandoned  its  problems;  and  the  proposed  new  Min- 
istry of  Reconstruction  was  generally  ridiculed.^  The  creation  of 
new  departments,  ir.deed.  involved  a  process  of  decentralization 

-iich  contrasted  with  the  policy  of  centralized  control  which  the 
new  War  Cabinet  was  suppo.sed  to  typify. 

In  the  coil  ,,ct  of  the  war  no  broad  and  coherent  policy  and  no 
effective  means  of  sy.stematic  control  over  the  numerous  depart- 
ments seems  to  have  been  developed.  Nor  was  there  any  definite 
statement  as  to  satisfactory  terms  of  peace  until  January,  1918. 

A  well  known  writer  views  "  with  some  misgivinj^  the  recent 
arrangements  by  which  the  Cabinet  is  to  a  great  extent  cut  off 
from  the  great  offices  which  carry  on  the  several  branches  of  the 
actual  government,  and  by  which  a  secretariat  is  interposed  be- 
tween the  supreme  governing  committee  and  these  offices. ' 

Criticism  arose  in  some  quarters  because  the  Cabinet  did  not 
confine  its  attention  to  war  problems.  But  the  unwieldv  multi- 
plicity of  ministries,  departments  and  other  agencies  badlv  needed 
some  balance  wheel;  and  the  more  serious  defect  was  that  the 
Cabinet  did  not  prove  a  sufficiently  effective  agency  of  control. 
I  he  problem  of  administrative  organization  is  not  one  to  be 

'  Sfc  I-ists  in  Parliamentar\  Papers   1915  Cd  7»'i<i-  1017  r,t   a7ji     /  i       . 

',  [''''  •'^••■'■.^,':/'."'''"-.  ""■  '"'-y-'  I  AuKtist  25,  1QI7I 
ipcncer  W  ilkinson.  in  MncUcnth  Century.  January,  I9I8,  p.  45. 


■■i 


^^•^mt 


52 


BRITISH    WAR   ADMINISTRATION 


settled  by  any  single  principle  or  catchword  of  centralization  or 
decentralization.  It  involves  a  careful  and  systematic  division 
ot  functions,  and  arrangements  for  effective  coordination  and 
correlation  between  the  several  agencies. 

If  an  outsider  may  venture  an  opinion,  there  is  need  for  a  still 
more  radical  reorganization  of  the  British  administrative  system 
affecting  not  only  the  Cabinet,  but  the  numerous  ministerial  de- 
partments.   The  number  of  main  departments  should  be  reduced  • 
and  the  less  important  services  organized  within  one  or  the  other 
ot  the  mam  departments.    For  example,  it  might  be  well  to  com- 
bine the  ministries  of  foreign  and  colonial  affairs.    There  could 
be  a  single  ministry  of  military  operations,  embracing  the  army 
the  navy,  the  air  service,  and  the  munitions  service.    A  compre- 
hensive ministry  of  home  or  internal  affairs  might  absorb  the 
functions  of  the  Home  Secretary,  the  Local  Government  Board, 
the  Board  of  Agriculture  and  the  Food  Controller.    A  minister 
of  trade  and  commerce  could  take  over  the  work  of  the  Board  of 
1  rade  and  the  Shipping  Controller. 

If  the  inim!)er  of  main  departments  were  thus  reduced  to  eight 
or  ten.  many  of  the  conflicts  between  what  are  now  distinct  min- 
istries could  be  settled  within  the  department.  A  Cabinet  of 
workable  size  could  then  be  set  up.  including  the  ministers  at 
the  head  ot  each  of  the  main  departments,  with  the  Prime  Min- 
ister as  the  general  director  of  the  whole  system.  Such  a  Cabi- 
net miglu  combine  the  advantages  of  centralized  control  aimed  at 
in  the  Lloyd  Ceorge  Ministry  with  ihose  of  t!  c  old  Cabinet 
system,  which  linked  the  central  council  with  the  administrative 
services  and  with  Parliament. 

Such  an  organization  would  also  lend  itself  to  the  further  de- 
velopment ot  imperial  organization.  The  five  or  six  ministers 
dealing  „>th  imperial  problems  could  sit  with  the  colonial  pre- 
miers and  a  representative  from  India  in  an  imperial  cabinet 
winch  would  also  be  small  enough  for  effective  results;  while 
imperial  conferences  held  from  time  to  time  with  more  repre- 
sentatives iron,  the  overseas  dominions  would  form  a  delibera- 
tive agency  for  the  consideration  of  larger  questions  of  policv 


THE    CABINET 


63 


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CHAPTER  IV 
Naval  Administration 

At  the  outbreak  of  the  war  the  British  navy  was  by  far  the 
largest  and  most  powerful  in  the  world ;  and  it  promptly  entered 
on  war  operations.  During  the  progress  of  the  war  there  has 
been  a  large  expansion  of  naval  strength,  though  little  definite 
information  has  been  published  as  to  the  forms  and  extent  of  this 
development.  There  have  also  been  some  changes  and  develop- 
ments in  the  internal  administration  of  the  navy,  and  some  im- 
portant changes  in  personnel  in  the  higher  posts.  But  there  has 
been  no  radical  reconstruction  in  the  machinery  of  naval  organi- 
zation and  administration. 

Some  account  of  the  development  and  organization  of  British 
naval  administration  will,  however,  be  of  service,  as  a  basis  for 
understanding  the  changes  introduced,  and  also  for  comparison 
with  the  organization  of  army  administration. 

Historical 

Until  the  beginning  of  the  fifteenth  century  the  English  navy 
was  managed  directly  by  the  Privy  Council,  with  executive  con- 
trol vested  in  officials  known  as  keepers  (afterwards  called  ad- 
mirals) assigned  to  localized  fleets  and  ports.  In  1400  John 
Branford.  Earl  of  Somerset,  was  appointed  "  Admiral  of  Eng- 
land " ;  and  other  Lord  High  Admirals  followed  in  succession 
until  l(i28  and  at  intervals  thereafter.  In  the  time  of  Henry  VIII 
a  navy  board  was  (jrganized  to  take  charge  of  civil  administra- 
tion under  the  Admiralty ;  and  other  officials  were  provided  from 
time  to  time.  It  was  under  this  system  of  centralized  control  that 
the  Spanish  Armada  was  overcome  in  the  reign  of  Queen  Eliz- 
abeth. 


.  ii*t'i:/fci^  .'.-■"/  M^j'.'^i 


PHH^IRSffBT' 


00 

BRITISH    WAR    ADMINISTRATION 

committees  of  Parliament.  From  1600  to  107-!?  "^''"^^^'Sf  by 
York,  was  Lord  H.,h  Admiral^Tndtom  l^ti™  ?u't  ""l 
of  Pembroke  held  this  position     It  .«  .T  V  *^'  ''"' 

from  10,30  to  1089  Samu     Pepv      L       V    'Tf  '°  "°'^  ^'^' 

powers  of  the  Admiralty  Board  •  °'^*'  "'' 

uZl  and  in  l.H^'  "'*"'''"^  commissioners  was  e^ab- 

"snea,  and  m  ]08!>  a  transport  board     Rv  i7«o  ♦», 
>"»  .ha„  ,h«ee„  „■„.  d.pa'T.^^.ri.lfn'/,   111,7;:;; 
«.     o(h„s  a,  different  pUces.    Wi,h  .his  elabo,a,e"nd  applr' 

^came  First  Lord;  and  in  this  capacity  trr^^^,',  ^.^i 
control  ,n  the  per.od  leading  to  the  battle  of  Trafalgar  «' 

The  need  for  a  reorganization  of  the  administrative  system 
uas  emphasized  by  the  reports  of  a  commission  of   nc  uiry  ap 
pom  ed  m  1801      m   180.  some  improvements  were  m  de  b,' 
Order  m  Council.     But   further  changes  of  greater  JmT  7     ^ 

«.u  oi  ifvti,),  K^,:,',  I8,s2  and  1!)04 

Under  the  original  patent  of  Queen  Anne,  the  powers  of  the 
Admiralty  Board  were  granted  to  any  three  or  mor'e  of   he    om 
ni.ss,oners:  and  the  act  of  10.0  provided  that  the  AdmiraTy 


NAV\L   ADMINISTRATION 


61 


Board  have  all  the  powers  lawfully  vested  in  the  Lord  High  Ad- 
miral. By  the  act  of  1  «s32.  the  powers  of  the  board  could  be  ex- 
ercised by  any  hvo  members.  This  act  also  abolished  the  Navy 
Board  and  the  victualinp  commissioners,  and  vested  in  the  Ad- 
miralty  the  powers  of  the  various  civil  departments.  Five  de- 
partments ere  established,  under  the  Surveyor  of  the  Xavy.  the 
Accountant  i  ieneral.  the  Controller  of  Victualing  and  Transport 
and  the  Physician  of  the  Navy.  There  was  also  to  be  a  parlia- 
mentary and  a  permanent  secretary. 
But,  as  has  lieen  pointed  out : 

I  s  in  truth  not  the  patent  which  regulates  the  business  of  the  .Admiralty 
but  a  body  of  usage;  more  or  less  fle.xible  and  Nariablo  in  character  which 
has  come  down  from  time  immemorial.  According  to  this  ancient  usage 
there  has  always  been  inherent  in  the  First  Lord  an  elastic  power  which 
enables  him  to  undertake  duties  which  the  public  welfare  may  require.' 

In  ordinary  circumstances  the  First  Lord  acts  only  in  concert 
with  the  board:  hut  in  emergencies  he  may  concentrate  in  his 
hand  all  the  powers  of  the  board,  as  was  done  by  ;.ord  Barham. 

The  act  of  1832  was  passed  through  the  influence  of  Sir  James 
Graham,  then  First  Lord  of  the  Admiralty ;  and  the  conduct  of 
business  under  this  act.  and  continuity  of  practice  was  main- 
tained through  the  long  tenure  of  Sir  John  Barrow  a^  permanent 
secretary  for  thirty  years. 

An  Order  in  Councd  of  l,s(iy  f^xed  the  distribution  of  business 
between  the  memliers  of  the  Admiralty  Board— and  impaired  the 
flexibility  of  the  former  system.  This  order  represented  the  First 
Lord  as  "  responsible  to  Your  Majesty  and  to  Parliament  for  all 
the  business  of  the  Admiral  y."  with  the  other  members  as  his 
assistants.  The  effect  of  this  change  was  soon  evident  in  the 
record  of  board  meetings.  In  iscc.  the  board  had  held  24!)  meet- 
ings; in  1870  there  were  only  ,'i;{  meetings,  mos?  of  them  lasting 
only  a  few  minutes  and  none  as  long  as  half  ai,  iiour. 

In  1872  another  Order  in  Council,  while  -til!  recognizing  the 
First  Lord  as  responsible,  no  longer  represented  the  other  mem- 

'  Quarterly  R.-viav,  vol.  2Zi,  p.  59  (191S). 


62 


BRITISH    WAR    ADMINISTRATION 


bers  as  h,s  assistants.    By  this  order  the  Controller  ceased  to  he 

a  member  ,.f  the  board ;  but  he  was  restored  in  isZ  ^ 

Orders  m  Council  of  August  10  and  October  -'o    lyo4    f„r 

Lord     h     ,   r  ''"""'  ''^'  ''''  ^'"'-  Second  and  Fourfh  Sea 
Lords  shou  d  I«  responsible  to  the  First  Lord  for  mattersof  n-r 

Z:  ;  '"'  '''■  7'''  '  ^''^^  ^«^"  -d  Controller  f^       ne  s'  e-' 
lating  to  materiel  assigned  by  the  First  Lord     Th  "f     [*" 

assigned  to  the  First  t;.a  i       i  1  ^^^  ^"^""^  °'"^er 

th.  LI  ^'^"'^  Sea  Lord  fhe  preparations  for  navH  war 

the  hghtmg  and  seagoing  efficiencv  of  the  fleet   control  of  the 

iefinte     the    "^  P'-act-ce ;  but  it  appears  to  recognize  mo-e 

Sea  Lord       '.T"u'  ''°"''°"  "^  ^''^  ^'"^  ^ea  Lord  to  the  other 


The  Admiralty  Board 

Hilh^T'''  f  commissioners  for  executing  the  office  of  Lord 
High  Adm,ra   now  consists  of  nine  members.    The  Fir^    Lord 

-r.iament.     \\  ,th  rare  exceptions  th  s  post  has  l)cen  fill^M 

on  the  o'h  r  I  v  th^         'I  r"  '''-  '"'^  '•"""'  ''>•  '^^  ^^'^■"et.  and 
case  (ji  serious  disagreement 

TheZt'^lf '""  "'  ';"'  ""'  ^"  '"^■^'^'-'^"  -  Sea  Lord< 
'  ^•'"'"■''•''^'  AVi/.-u-.  vol.  223.  pp.  207-212  (1915). 


NAVAL    ADMINISTRATION 


63 


In  addition  there  is  a  Civil  Lord,  an  additional  Civil  Lord 
(added  a  few  years  ago)  and  a  Parliamentary  and  a  Permanent 
Secretary,  whose  functions  are  also  set  forth  l)elo\v. 

Unlike  many  other  hoards  in  the  British  system,  the  Ad- 
miralty Board  holds  frequent  meetings  at  which  important  ques- 
tions of  policy  and  administration  are  discussed  and  decided. 

The  specific  funr-  -s  of  the  several  members  of  the  .-Vdmiralty 
Board  ire  descr'  '  ,  ;>.e  following  statement,  from  the  ConsH- 
tiitional  Year  .r  i'>K  "1-G2) : 


The  First  Lo--:  ^r    '• 
superviiiion     •   „ 
with  all  m     .  • 
naval  and  i-      :       „  '■ 
yacht) ;  ar      ■•    net 
rear  adm  v  a- 

pointmcnti   i.-    "if    • 
entry  of]  navi    cli  .;  r 
(higher  posts)    ll;^rr.l 
R.  N). 


Vf]. 


T'        .le  for  the  general  direction  and 

i'        avy.     He  also  deals  personally 

•■■■■      -emovals  from  the  service  of 

I''  r  ■  ,  ;,1s  [royal  yaciit*  and  admiralty 

■^i.:f  I  -  in  command  [including  tngmeers, 

'  •   ..V  surgeons  general,  and  staff  ap- 

iian!    n   of  the  fleet,  appointmei.t   and 

•I    -. ;  civil  appointments  and  promotions 

r,.  Vtships  and  to  assistant  clerkships, 


The  r.rst  Sea  Lord  advi  ,cs  inr  rirst  Lord  on  preparation  for  war,  and  on  all 
large  questions  of  naval  policy  and  maritime  warfare.  He  is  responsible  for 
the  fighting  and  seagoing  efficiency  of  the  fleet,  its  organization  and  mobiliza- 
tion;  the  dist.ibution  and  movements  of  all  ships  in  commission  and  in  fleet 
reserve:  the  control  of  the  War  StafT  and  the  Hydrographic  Department 
Ouestions  of  import=«nce  relating  to  discipline  are  also  referred  to  the  First 
bea  Lord. 

In  any  matter  of  great  importance  the  First  Sea  Lord  is  always  consulted 
by  be  other  Sea  Lords,  the  Civil  Lord,  the  additional  Civil  Lord  and  the 
Parliamentary  and  Perma-.it  Secretaries,  and  refers  to  the  I'lrst  Lord  for 
an  further  ictton  considered  necessary.  AH  members  of  the  board  com- 
municate direct  -Wth  the  First  Lord  whenever  they  wish  to  do  so. 

The  Scnmd  Sea  Lord  is  responsible  for  the  -nanning  and  irainin^  of  the  fleet 
which  includes  complements,  barracks,  training  d  ouicational  establish- 
ments, dso  all  mobilization  regulations  for  the  p.  i^nncl-  service  a  d  ap- 
pointnicnts  of  officers  of  all  branches  (except  as  ,  ned  to  First  Lord) 
Roya  .Marines;  Coast  Guard  and  Reserve  forces;  hospitals;  discipline  and 
signals. 

The  Third  Sea  Lord  (Controller)  is  responsible  for  the  design  of  the 
nmtenel  for  the  fleet,  including  ships  and  their  machinery,  .irmor  naval 
ordnance  and  gun  mountings,  aeroplanes  and  airships,  and  docking  facilities- 
also  alterations  and  additions  to  ships  which  affect  design  or  fighting  •  ffi- 


m 


64 


BRITISH    WAR   ADMINISTRATION 


ciency;  preparation  of  estimates  of  cost  of  all  „.^  .       • 

in  any  year  under  current  and  oro  o^.L  construction  falling  due 

departments  of  the  director  o1  Z7T'Z''T^'""'-  ^"P*''"'«dence  .,f  the 
of  naval  ordnance.  dire«or  of  arLpartrnr'  T'"'"  '"  '^'"^'-  ''-"•- 
passes:  design  questions  affect  ngvSTrolse",  .'"!"""''"'""  "'  ''""■ 
rieet  or  to  be  employed  in  auxlharv  servi"«  ""'"'""''  '"'  "^^ 

machinery,  etc.;  salvage  of  ves«  w  far  ."V  T'"!'""'  ^^'''''"«  *°  'hips. 
s.derations  are  involved.  ^^''"'"'  '"•*  Professional  con- 

passages;  the  superintendence  of  nTval  .ore  H  T''','""'^'^'"'  ""'""  ^ 
services;  ordnance  and  medical  ..Z\  .'  .^"  '^°"'"'«  ""'   victualing 

full  and  half  pay    iZtltZT'/         "'^  "^^  ^ 

prize  .u.s,ions%^i;.:;rardsurveyi,:Tr:'d'f'  "h'"';"^  •'"^''  "-"-^^ 

extra  payments;  debts  of  officers  a^ In  .       !""''  °'  ''"""^^  ='"<'  »" 

acter.  conduct  and   badge  que,   ons    ^    >  "'"'"'  '^"''°"'-  ^''"- 

apprehension;  removals  of  "  R  ge.ie  a  sa  va^"  ^  deserters-rewards  for 
demands  for  salvage  of  naval  stores  colirs.onf  '"°"'''  """''""^  '"^  '"""^^ 
TAf  CiViV  Lord  has  charae  of  worUc  or,^  k    u- 

•and;  coast  guard  buildings.  leTaid  ea'se  "T^f".;",'""^  ''"^^"^-^  °' 
as  reserved  to  First  Lord)    includi-,.,  ri?..  «'   .  '  ''""ants   (except 

pay.  allowances  and  pension  do^kvIrdt'^'T"  ^  appointment,  promotion, 
■ncluding  appointment  .  except"  f'^ 'ar'h"\  ""T""  "°*''"="  ''-'""'. 
of  Royal  Hospital  school,  cu^a  o  oVh  j  Pa  n  cTh:.  '"'T'  '""-■"'^•"'l-'' 
Greenwich    Hospital   pensions)-   chari  .hi      f     ^  '  "''  ^PPo'ntment,  to 

subscriptions,  etc..  and  allowance,  ,  ^  compassionate   allowances, 

of  churches  and  schoo  ^a  anrdo'w"  1  "u«""  '"'  «-«'  "'  -^ 
affecting  retirement  and   pa^o     navat  and   i'.  '^'"'-   '"""'   ''"""°"' 

discretionary  power  is  prov  ded  for  bv  O  dr  r  °*""  '""'  """•  ^^en 
of  an  important  character  arlJZ^'roUi^Z-   *"'*  """"""' 

«un  mountings,  aeropla  es  and  a.rsh.no  ""i"  '"""''  "''^•="  "''''""-^-  '""I 
"f   all  description.     Co' .racrarranLero  ,  "^  *""  "'"'''"'">  '"'^  ^'o^" 

salvage  or  loan  of  vessel  Tore's  '"  """r"""  "'"■  ""^  ''*^P->'- 
purchase  department ;  ;enraT.,rgam.a.'ro7T'f"':  "'  ''''  '"'"-^■'  -1 
of  labor  and  plan,,  and  all  bus ZTZ  °r*''''^'*>"'''-  "'^'"ding  provision 
and  repair  of  ships  and  .heir  '"^rh,'"  T'""''"*'"''  *'"'  ""e  building 
private  yards.  ""  machinery,   whether   in   the  dockyards  or   in 

-sh.  store  and  d.icLard  ex  ,/,  !e    nurct    "'"7"", -""'"'""^'■^   --"'"^- 
Kenerally;  payment  of  hir    o       1  .j/a™  /"     "i      "^  '"""  """'  "'  ''''"^^ 

--^.  ^^^..u  Ships,  etc.;  iui,nr.;trr  t:rz:Jr 


NAVAL    ADMINISTRATION 


65 


financially,  except  as  provided  for  under  the  Civil  Lord ;  questions  connected 
with  exchequer  and  audit  department ;  general  labor  questions,  including 
annual  petitions. 

The  Permanent  Secretary  has  control  of  the  discipline  of  the  various  depart- 
ments of  the  Admiralty :  recommendations  for  appointments  and  promotions 
in  the  Admiralty  office ;  correspondence :  communications  with  foreign  naval 
attaches;  communications  with  ministers  of  religion  (other  than  Church  of 
England ) ;  appointment  of  messengers. 

.\n  examination  of  the  above  .statement  indicates  that  the  di- 
vision of  !al)or  between  the  several  members  of  the  AdmiraUy 
Board  is  not  sharply  differentiated  into  a  few  main  categories; 
but  that  there  seems  to  be  considerable  overlapping  or  more  often 
a  subdivision  of  one  main  field  lietween  several  members  of  the 
board.  This  is  also  evident  by  noting  that  of  the  numerous  sub- 
departments  into  which  the  Admiralty  is  organized,  a  number  are 
under  the  supervision  of  two  or  more  members  of  the  board  for 
different  phases  of  their  work.  P'riction  on  this  account  is  prob- 
ably reduced  by  the  general  sujiervision  oi'  the  l-irst  Sea  Lord 
and  the  First  Lord  of  the  Admiralty. 

F"or  example  the  engineers  department  is  under  the  direction 
of  the  Second  Sea  Lord  in  matters  of  personnel,  and  under  the 
Third  Sea  Lord  in  matters  of  materiel.  The  functions  of  the 
civilian  members  appear  to  cover  many  matters  also  under  the 
control  of  the  Sea  Lords. 

The  various  administrative  departments  and  services  under 
the  Admiralty  Boaril  are  listed  l)elow,  grouped  so  far  as  possible 
under  the  several  members  of  the  board.  The  new  departments 
organized  since  the  beginning  of  the  present  war  are  indicated  by 
italics;  and  these  will  be  discussed  more  fully  hereafter. 

Lords  of  the  Admiralty 
First  Sea  Lord 

Admiralty  War  Staff 
Operations  Division 
Intelligence  Division 
Mobilization  Division 
Trade  Dh-isioii 
Navigatioii  iJenartment 
Hydrographic  Department 


66 


I 


BRITISH    WAR   ADMINISTRATION 


Sec-ml  Sea  Lord  ([»ersonneI) 
Educational  I-stablishments 
Koyal  Marines 
Coast  (luard 
Koyal  Naval  Reserves 

Discipline  (Courts  Martial) 
Third  bea  Lord  (Materiel) 
IJepartment  of  the  f)irectnr  r>f  v       i  i       • 
Department  of  the  D  irec^or^"/ ^^al  ("'"'P"'*^"^ 
Department  of  the  Engineer  in  Chll  ''"•""•"^^'°" 
p^  Compass  Branch 

Fourth  Sea  Lord 

Department  of  the  Director  ,,f  t. 
Victualing  Department  ^""'^P""^ 

CivMlToT"'  "'  ^''■'•^^"•"  "'  ^^^^'  -^-es 

Department  of  the  Director  of  Works 

Greenwich  Hospital 
Additional  Civil  Lord 

Contract  and  Purcha>e  Department 

Department  of  the  Director  of  Dockyards 
Parl.amentarv  Secretary  '^'^ck>ards 

Department  of  the  Accountant  fJeneral 

Pe^SnenX;:.^:^'^^^'-  '^^  ^^'^^^>-^  '-P--  Accounts 
Medical  Department 
Chaplain  of  the  Fleet 
F'toyal  Ol^tTvatories 
•Vaiitical  Almanac 

tioanf  ,,/  /mvnlums  and  Hcscarch 
I  rtcc  L  latins  Committee 

■Y"":ol  Shirs  fh-tr„tion  Committer 
Admiralty  Coastm,,  Trade  Committee 


•\lU     Ai.l  Mii-s 

The  ncnl\    cstnlili^hi., 
Admiral! \     !'r;iii<)„  rt 

^MIU    111^'    ,.,■    ,1h.    ,,,,,.      ,^     |,,,.^j,^ 


;'  ■'^^"''^•^   '"   "'*■    A'!"iiraltv    ,nclu,;r  ,1k- 


"vi'iiii,.,!  .m,i  Kcfan-li 


'Tf.lto 


NAVAL    ADMINISTRATION 


07 


ill  July,  101.-.,  a  Trade  Division  in  the  Adnilraltv  War  Staff 
and  committees  on  prize  claims,  detention  of  neutral  ships  and 
the  coasting  trade.  Closely  connected  with  the  work  of  the  n.ivy 
and  the  Admiralty  are  the  prize  courts,  cstal)lished.  as  in  previous 
wars,  to  pass  on  the  validity  of  the  detention  and  seizure  of  ship>i 
and  cargoes. 


Admiralty   Transport   Arbitration   Board  ' 

A  Royal  Proclamation  of  August  .!,  P.MI.  authorized  the  Ad- 
miralty Hoard  to  requisition  any  British  ship  or  British  vessel 
within  the  Briti.sh  Isles  or  waters  adjacent  thereto,  the  compen- 
sation for  the  use  of  such  ships  and  vessels  to  he  arranged  either 
l)y  mutual  agreement  l)etween  the  .Admiralty  and  the  owners  or 
hy  the  award  of  a  Ixjard  of  arbitration. 

On  August  11,  notification  of  the  appointment  of  the  members 
of  this  arbitration  hoard  was  announced,  and  rules  of  procedure 
were  set  forth.     On  August  .'il,  another  notification  was  issued 
anuMiding  the  constitution  of  the  hoard.     .As  first  announced  the 
board   was  comi)osed  of  a  president    (  Rt.    Hon     Lord    Mersey. 
I'.C.  t.  a  vice  president.  ,'Md  other  members  t,.  l,i-  chosen   from 
panels,  including  !•  government  nominees  and  :;>  representatives 
o«   various  busincvs  nuerests.     As  amended  the  niemliers  in  the 
l)anels  were  incni-ed  to   II   govermneni  nominees   (including    t 
naval  officers ) .  .".:;  representaiives  of  business  interests,  and  repre- 
■entatives  of  ship-  officers  and  crews,  as  follows  ;    1  1  ship  owner-. 
-'  iii-Ui-ral  traders,  o  from  '//<•  loastini/  trades.  .'  ..//  /,;)//■  stranu-r 
o-u-ncrs.  ?  cari/o  ounrrs.  ::  bankers,  n  underwriters.  '.   frMin  itui- 
rme   in-ur.ince  compaini-.   f,    (  _.  |    nisurainc   broker-,    f,   .iverai^e 
adjuster-,    >  deck  ofJiirrs.  _•  marine  .•m//(/,',r.v,  j  seaiiioii.    I  .ua- 
iiiau  and  fircnian.  .-ind  /  rcprescntin,!  .sitip.s'  stewards,  ete.    Tliosf 
in<lu-ated  ni  italiis  werf  ,i(|,i.',i  t,,  ilu'  y-AwU  m  iju-  -ccond  tioti- 
lic.ition 

I'nder  tile  rule-  -I   procfihuc,  tiie  arbitrati. 'ii  boar,!-  \s,tc  to 
cn-ist  ot  lu,,  menijier-  -eleuetl  b\  tlie  pre-idiMit.  cir  ..i  the  prc-i 
dent   .ir  \  ice  presjiicii;   .iild  iw.i  .iilu-r-   -fleet, ■, I   \^\    ih.e  pre-ulelit. 


68 


BRITISIf    WAR    ADMIMSTRATIO.V 


i 


The  president  might  authorize  the  panel  •,..,,     , 
them.  r.>  act  as  a  hoard  to  r,,n  ■;  i  ''  '""'>•  '"■  •"'\-  "f 

'-"•  '''-^buratorsrh  ;     ;;'1''T-^'''"^  "'  ^*^'"^^'  ^'""-- 
conclusiuns  of  such  a  board.  "'"  '"  ''''  '^''"'"'  ^^^  '''^ 

^'''"■''  "f  fnrcntion  and  Research 

established  Boar.i  of  Invent io  and  i"  ''  u"  '"''''  "^  ^  "^^^I^' 
Acimirahy.  This  ,K,an.  c,  " Ld  o  ""  T"""'^'  ^^''^  ''^^ 
Pri-ng.  i„  ad.htion  to  Adm  Tf  1  '"""'  "'""""^^^'  -""- 
J  J.  Thon,.son.  Honorab.  sTcLr:  "x ',V'"^"'*^"'-  '"^°'--"- 
^edby.  with  a  secretary    a  ,L.  7  "'"'  ■'"''  '^^-  <'   T, 

-cretanes.  and  a  cotl^^i.;  ,7!'?^"^:  ^  ^^^«^  -f  assistant 

•'science,   members   of   the    R   v^f        '"  ""'vers.ty  professors  of 
CVookes  and  Sir  Ohver  Loci,;;',  '  ''•"    ^'"''"'^'"fi^   '^^    ^m. 

In  reply  to  a  (|uestion  in  the  House  of  c 

I"  'Ik-  naval  service:  '"*  '»  '"   ini|«J"amY 

''''    To  enaiiiraire  r.Knr,-!.  ;.,    . 

probable  that  results  ovah.ettb  '"'""'  '"   ^^'''^■'^   '^  '-^ 

•T^'a.n.ed  scientific  efTort  ""  ""^^  '"^>-  '^'  '"a.ie  by 

i"v«^nors'and  oilier  members'of'df ''""'. ''"'  ''^^^^=»'-''  ''v 
<'iemi)tr>,  ot  the  general  public. 

The  board  iiad  funds  for  trids  -.,,,1 
-'  advisory  capacity  ,.,  H,e  .     m^d       ^^i;;:—-^-'-'  -ts  ,„ 

--^;;-.'-con.i., ,,::,, -—'.—■;: 


N".\\  \l,     \I).M  |.\  IM  IT  »  TKj- 


60 


subcommittees  fref|ucntly  The  presi.!*^'  at--  le.l  r,4  ■sittings 
in  1-2  months.  He  receive  I  his  salai-  ^<  rcijrefl  nfficer 
(f  l,:i."><t ),  and  the  naval  meinhc-  ni  the  rt,*rai  tmnittee  re- 
ceived a  >alary  of  £l.,-..i()  a  year  The  ^ai..'  ..;  iu-  resident 
director  of  research  (£l,()()0)  wa-  rciiiiided  to  the  i  iiiversity 
of  London:  and  the  director  of  engineering  research  \va>  allowed 
expenses  up  to  £500  a  year. 

Thr   Trade  D  hist  on 

This  division  of  the  Admiralty  ^\'ar  Staff  consists  of  a  direc- 
tor, as  adviser  in  conmierce,  a  naval  staff,  a  marine  stafT,  a  civil 
staff  with  clerks  appointed  for  temporary  service  during  the  war 

Tlu-  Prize  Claims  Committee 

Notice  was  given  on  .V.ivemher  l'T.  I!tl4,  that  a  committee  had 
been  appointed  to  receive  and  consider  claims  made  by  British 
or  neutral  third  parties  against  ships  <ir  cargoes  condemned  or 
detained  hy  order  of  j)rize  courts,  and  to  recommend  to  what 
extent,  in  what  maimer  and  on  what  terms  such  claims  should 
be  provided  for  out  of  |)rizes  funds.  ' 


{'hizk  Courts 

In  the  United  Kingdom 

On  .August  'i.  lull,  an  Order  in  Council  was  pronnilgated 
directing  tiie  is>ue  <<i  a  cmm  i>-,ion  under  the  (ireat  Seal  au- 
thorizing tile  Admiralty  I,,  rei|uire  the  High  Court  m  lake  cogni- 
zance of  an<l  judicially  pmceed  iij.on  .iii  <leterinine  captures. 
pri«-,  seizures  and  reprisals  and  t..  condann  .  arman  vessels 
and  giKKls. 

riie  same  day  the  I'rize  Courts  (Procedure)  Act  liHt,  1,,'- 
came  law,  repealing  certain  pnjvisions  oi  tiic  \ava!   I'rize  Act, 


■  Siippl.tiifiil    X.,    J    ,|).H.    lvl-4  1    t„    Uciiiuj/   •■/   / 
I'    IHO     Sii|i|ilimcni    \o    -1   i   \ii^    ,!;.   I'M.^i   p    ,V»J 


m,-i,j,'ii,\    l.t-ijislatxon. 


70 

BRITISH    WAR   ADMINISTRATION 

made  statutory  rules    and  fTom  .  P'^^^^'^onal  rules  were 

been  amended  "^  '""'  '°  ^""^  ^^ese  rules  have 

in^^'r^hf  i^^-^^f-"^ -■'  -^'^^^  ^^^^  ^- 

tain  modifications.  Te  puT°" ^^  „  .'s  if "it\  "l' K  "'^"^  ^^  *^^^- 
that  all  prize  courts  should  conTtrue  nd  !  ""  "■''''''•  ^"^ 
tion  by  the  light  of  th.  .      ^""^t'^^e  and  mterpret  the  Declara- 

of  the'draft  ntc  mm  ttee'^Thr'  'r'"^  '""^  «^"^^^'  -P-^ 
of  contraband^euTrT   v'ssell  h."        '^'"""^  ''''''''  '""^  "-^^ 

-destination,  andr;^::--^^^^^^^^^ 

/«  /A^  Dominions  and  Dependencies 
certain  Drilish  courts  in  En  „,   7    T  '^   "  JWisJwion  by 

.".i.r  :,„.  a„  o„,„  '."c^s,  t:;':^',:;^^'^™?-  °"  ^^''- 

sion.  under  the  Great  Seal  tn  J      ^'':^''  ^''^  i.ssue  of  a  commis- 
Zan.ibar  and  Cvnrn    ^TT     ^""'  '^'  ^'''''''^'  '^^"'^^  >"  I^Rvpt 

-  ^•'fTurMshsh;;:::^:;; :::,;;:;:;-- ^ 

'^       5r::.;;;^,i::--'^«-*-ci  a  notification  of 

'■'ifications  sch     u  Cth'"       "  '""""^  '"""'''''''■     '■'-^• 
^-al  courts  were  i^e        1        ""^"'"^'""  "'   "'"^ditional  c- 

— er ... ..,,;;::;  Mrr:." "  v:  "^'^^  '^^  '">^- 

tlH-  following  list  nf  pri.e  cour'ts"  '     '*  "''""^''  ''>°^^'^^ 

Ouianaand  Bri„sh  Hon    "a     i     ',::";.;'  "i "'  ' * 

'  ""-'*"''da.  the  exchequer  court  of 


NAVAL   ADMINISTRATION 


71 


Canada  or  local  judges  in  admiralty  at  Quebec.  Halifax,  St 
Johns.  Victoria  snd  Charlottetown ;  the  supreme  courts  of  Cey- 
lon. Cyprus.  Falkland  Islands.  Fiji.  Gibraltar.  Hong  Kong  Ja- 
maica and  Leeward  Islands;  the  commercial  court  of  Malta'  the 
supreme  court  of  Mauritius.  Newfoundland.  New  Zealand  and 
Sierra  Leone;  in  South  Africa,  the  Cape  of  Good  Hope  and  Na- 
tal provincial  diMsions  of  the  supreme  court;  the  supreme  courts 
of  the  Straits  Settlements  and  Trinidad;  the  roval  court  of  St 
Lucia  (Windward  Islands) ;  His  Britannic  Maje;tv-s  Courts  for 
Zanz.!)ar  and  m  Egypt ;  in  India,  the  high  courts  of  judicature  at 
Calcutta.  Bombay  and  Madras  and  the  court  of  the  judicial  com- 
missioner m  Sind:  the  chief  court  of  Lower  Burma;  and  the 
court  of  the  Resident  at  Aden. 

Central  Administration- 

During  the  progress  of  the  war  there  has  been  a  series  of  im- 
portant changes  in  the  personnel  of  the  highest  positions  in  the 
Bnt.sh  naval  administration.  These  changes  have  indicate.l 
he  development  ot  new  views  as  to  the  type  of  men  best  adapted 
for  these  posts,  an.l  have  also  involved  some  alteration  in  the 
organization  of  the  central  administration  of  the  navv 

At  the  outset,  the  chief  posts  were  held  by  Winston  Churchill 
as  I.,rst  Lord  of  the  Admiralty.  Admiral  LonI  I-'isher  as  First 
Sea  Lonl.  and  Admiral  Sir  John  Jdlicoe  in  command  of  the 
mam  fleet.  hurdi.ll  was  a  brilliant  and  impetuous  political 
leader  for  whom  has  been  claimed  the  credit  for  hanng  Z 
mam  fleet  mobilized  for  action  when  war  was  declared  He 
a  so  umiated  several  venturesome  actions,  which  were  not  snc- 
cess.ul.  notably  th.  use  of  naval  reserves  in  the  defense  of  Ant- 
werp, and  the  naval  attack  on  the  Dardanelles.  Lor.l  Fi.her  had 
.een  the  active  leader  in  developing  ,he  policv  of  naval  construc- 
t>.-".     en.iasm  of  the  Dardanelles  attack  brought  forth  the  ex- 

that  ht   ha<l   not  openly  expre^sd   opposition.      Lonl    Fibber's 
oi'Z!Zr  '  '"'"  '"'"'^  "  ""  '■^'^'"^^  reorgan.zat,..,. 


72 


BRITISH    WAR   ADMINISTRATION 


In  the  Coalition  Cabinet,  Churchill's  place  was  taken  by  Sir 
Arthur  Balfour,  formerly  Prime  Minister  and  leader  of  the 
Unionist  party,  older,  more  experienced  and  more  conservative. 
Lord  Fisher  was  replaced  by  Admiral  Sir  Henry  Jackson ;  while, 
as  has  been  noted,  Fisher  was  given  a  new  post  as  head  of  the 
newly  established  Ixiard  of  invention  and  research.  Jellicoe  re- 
mained in  command  of  the  main  liattle  fleet.  This  leadership 
continued  until  the  next  Cabinet  reorganization  in  Decemlier, 
1010.  This  period  was  marked  by  a  discontinuance  of  spectacu- 
lar episodes,  the  maintenance  of  sea  control,  and  the  naval  battle 
of  Jutia.id,  which  resulted  in  the  retirement  of  the  German  fleet 
to  its  base,  but  not  in  its  destruction.  But  submarine  attacks  by 
the  enemy  were  not  suppressed  and  continued  to  increase. 

When  the  Lloyd  George  Cabinet  and  Ministry  was  formed,  at 
the  end  of  lOK!,  Mr.  Balfour  was  transferred  to  the  Foreign 
Office;  and  at  the  head  of  the  Admiralty  was  placed  Sir  .Edward 
Carson,  a  younger  and  more  energetic  political  leader,  prominent 
as  an  opponent  of  Irish  Home  Rule,  and,  like  his  predecessors, 
without  any  special  training  in  naval  affairs.  .■Xt  the  same  time 
Admiral  Jellicoe  was  called  from  the  main  fleet  to  be  First  Sea 
Lord ;  and  the  command  of  the  fleet  was  given  to  Admiral  Beatty. 
These  changes  suggested  a  somewhat  more  active  policy,  but  did 
not  result  in  any  radical  revolution  in  naval  procedure.  The  sub- 
marine offensive  of  the  enemy  continued  to  increase. 

These  changes  in  the  high  command  were  followed  by  others 
and  also  by  some  admini.strative  reorganization.  A  new  anti- 
sulimarine  division  of  the  naval  war  staff  was  formed  with  an 
atiniiral  nf  the  grand  fleet  as  director;  and  a  director  of  naval  air 
services  was  appointed  as  a  fifth  Sea  Lord  on  the  Admiralty 
Board. 

In  May.  I'.HT,  the  former  jx>sitinn  of  Controller  of  the  Navy, 
as  a  nicniher  of  the  .Xdmiraltv  Honnl.  was  revived  and  this  post 
was  given  to  Sir  F.ric  (ied(le>.  a  successful  business  man  who  had 
shown  marked  executive  ability  in  charge  of  the  transport  serv- 
ice lor  the  British  army  on  the  Continent.  The  Controller  of 
the  .\avy  was  made  responsii)le  for  shipbuilding,  not  only  for  the 


iu 


NAVAL   ADMINISTRATION 


73 


Admiralty,  but  also  for  the  War  OfTice  and  the  Ministry  of 
Shipping.  Three  deputy  controllt-r-  were  appointed,  for  dock- 
yards and  shipbuilding,  for  armament  production  and  for  aux- 
iliary (mercantile)  shipbuilding.  ' 

On  May  14,  a  naval  staff  was  organized  with  the  First  Sea 
Lord  as  chief;  and  the  deputy  and  assistant  chief  were  made  ad- 
ditional menil)ers  uf  the  Admiralty  Hoard. 

In  addition  to  these  individual  changes  in  the  highest  posi- 
tions, there  have  l)e!n  numerous  other  transfers  and  changes  not 
only  within  the  navy  and  within  the  Admiralty,  hut  also  by  trans- 
fer between  the  naval  forces  at  sea  and  the  administrative  offices 
of  the  Admiralty.  The  general  character  of  these  changes  has 
l>een  set  forth  by  a  writer  in  the  Fortnightly  Reviciv  for  June, 
1!H7,  apparently  in  reply  to  criucisni  of  the  Admiralty,  as 
follows : 


So  far  as  the  .Admiralty  is  concerned  with  naval  policy  (not  civil  work] 
that  policy  is  settled  and  elaborated  by  ofticer*  of  the  navy  with  sea  experi- 
ence not  inferior  to  that  possessed  by  the  officers  at  .sea.  The  personnel  of 
the  .Admiralty  is  fed  from  the  rteet.  and  concurrently  officers  periodically 
leave  the  .Admiralty  for  service  afloat.  .At  a  rough  estimate  there  must  be 
between  400  and  500  officers  of  all  ranks  employed  continuously  at  the 
.Admiralty,  and  hardly  a  week  passes  but  some  e.xchange  is  made  between 
Whitehall  on  the  one  hand,  and  the  Grand  Fleet  or  the  patrol,  submarine 
or  destroyer  services  on  the  other.  .  .  .  Since  the  begiiming  of  the  present 
year  over  twenty-five  per  cent  of  the  members  of  the  War  StafT  have  been 
appointed  straight  from  the  sea.  where  they  had  gained  experience  at  first 
hand  of  the  present  phase  of  naval  warfare.  .  .  .  The  .Admiralty  draws 
its  inspiration  from  the  fleet,  as  the  fleet  draws  its  inspiration  from  the 
Admiralty.   .    .    . 

The  .Admiral  who  was  in  supreme  command  of  the  Grand  Fleet  on  May  31 
(Jellicoel  is  today  First  Sea  Lord  of  the  .Admiralty,  and  therefore,  by 
immemorial  custom,  in  control  of  naval  policy,  exercising  his  influence  over 
the  War  Staff,  which  is  under  his  direction,  and  over  other  sections  of  the 
administration.  He  is  associated  with  Vice  .Admiral  Sir  Cecil  Burney.  a  year 
ago  second  in  command  of  the  Grand  I-'leet  and  now  Second  Sea  Lord,  with 
Kear  .Admiral  Lionel  Halsey.  then  Captain  of  the  I'leet  and  now  Third  Sea 
lx)rd,  and  with  Kear  .Admiral  Hugh  H,  D.  Tothill.  then  in  comman.l  of  a 
battleship  of  thi  Grand  Fleet  and  now  I'ourtli  Sea  Lord.  Fach  of  these 
ottiitrs.  on  comnig  to  the  .Admiralty,  brought  with  him  others  on  whom  from 
experience  he  had  learned  to  rely  lor  as>istaiKe  and  support 

'  /7i.-   War  i  til'iuti     Report  f,ii   the   \  car  /.''/T,  pp.  J5  tf 


74 


BRITISH    WAR   ADMINISTRATIOK 


In  July.  1917,  when  Sir  Edward  Carson  was  transferred  to  the 
War  Cabinet,  his  place  at  the  head  of  the  Admiralty  Board  was 
given  to  Sir  Eric  Gcddes.  He  iiad  no  more  special  training  in 
naval  matters  than  his  predece:  ;ors;  but  the  appointment  of  this 
business  executive  represented  a  new  type  of  civil  leadership  for 
the  navv,  in  marked  contrast  to  the  long  line  of  Admiralty  chiefs 
selected  from  the  class  ot  British  political  ministers. 

The  appointment  of  Sir  Eric  Geddes  as  V'nst  Lord  was  fol- 
lowed by  further  changes  in  the  internal  organization  of  the  Ad- 
miralty. The  Admiralty  Board  was  divided  into  two  committees, 
one  dealing  with  problems  of  maintenance  and  the  other  with 
operations,  each  of  which  met  at  least  once  a  week,  while  the 
full  board  also  held  weekly  meetings.  The  First  Lord  acted  as 
ex  officio  chairman  of  both  committees,  and  Admiral  Wemyss, 
who  was  appointed  tb  a  new  position  as  Deputy  First  Sea  Lord, 
served  as  liaison  officer  between  the  two  committees.  The  naval 
staff  was  strengthened  by  adding  directors  of  plans,  of  train- 
ing and  of  mercantile  movements.  ' 

The  effect  of  the  reorganizatiem  of  the  Admiralty  Board  has 
been  described  as  "  to  decentralize  the  administration,  but  at  the 
same  time  to  strengthen  the  control  of  the  board  over  business 
as  a  whole  and  speed  up  the  machinery  of  production  and  de- 
cision. " 

These  and  other  changes  did  not,  however,  satisfy  the  critics 
of  the  naval  administration.  Criticism  tended  to  concentrate  on 
Admiral  Jellicoe,  whose  position  had  been  somewhat  weakened 
by  the  new  post  of  Deputy  First  Sea  Lord.  Towards  the  end  of 
1017,  Jellicoe  was  replaced  as  First  Sea  Lord  by  .Admiral  Wem- 
yss. Perhaps,  as  a  result,  a  more  aggressive  policy  of  naval  ac- 
tion was  shown  in  the  naval  attacks  on  Zeebrugge  and  Ostend, 
in  the  spring  of  1!)1S. 

Detailed  information  as  to  the  material  expansion  of  the  navy 
has  not  been  made  public.  But  the  total  displacement  tonnage 
had  increased  from  2,400,000  tons  in  l!tl4  by  75  per  cent  at  the 


'  n  hilak-crs  .l/iiiUMu./.'.  1918.  p.  <i';j. 

'  Th,-  ll'ar  Cabinet:  h'fport  for  the  >'.-ar  'y/7. 


NAVAL   ADMINISTRATION 


75 


end  of  1917.  The  total  tonnage  of  vessels  employed  had  risen 
from  4,000,000  tons  in  September.  11)14.  to  (i.OOO.OOO  tons  at 
the  end  of  1917.  The  number  of  auxiliary  vessels  had  been  in- 
creased from  23  in  11)14  to  700  in  1!'17.  The  naval  personnel 
had  been  enlarged  from  14."),()00  to  420,000.  The  naval  air  serv- 
ice— which  in  11)14  had  included  7  airships,  about  100  airplanes 
and  a  personnel  of  <S00 — had  grown  in  1!)17  to  17(!  airships  and 
balloons,  2,.")00  airplanes  and  a  personnel  of  40, 000.' 

'  The  War  Cabinet:  Report  for  the  Year  I'Jll,  pp.  ii.  37. 


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CHAPTER  V 

Army  Administration 

In  sharp  contrast  with  the  navy,  the  British  army  at  the  out- 
break of  the  war  comprised  only  a  small  volunteer  force,  insig- 
nificant in  comparison  with  the  armies  of  the  other  great  nations 
of  Europe  recruited  on  the  basis  of  universal  military  service. 
At  the  very  outset  of  the  war  provisions  were  made  for  a  large 
increase  in  the  army;  and  further  increases  were  authorized  at 
frequent  intervals.  For  more  than  a  year  the  volunteer  system 
was  continued  in  form;  but  later  the  principle  of  cu^ipulsory 
service  was  introduced,  and  afterwards  extended.  The  result 
was  that  from  a  nominal  force  of  about  900.000  in  all  branches, 
and  perhaps  000,000  enrolled  in  the  regular  army  and  the  re- 
.serves.  and  about  100.000  available  for  immediate  service,  the 
army  was  increased  to  a  total  of  more  than  0,000,000  men. 

This  manifold  expansion  of  the  army  necessarily  involved  a 
corresponding  growth  in  the  administrative  organization,  and 
much  more  important  developments  in  the  administrative  agen- 
cies than  in  the  field  of  naval  administration.  There  have  also 
been  changes  oi  first  importance  in  the  personnel  of  the  higher 
posts,  which  have  involved  the  application  of  new  ideas  and  the 
selection  of  distinr-tly  different  types  of  officials  for  some  of  the 
highest  positions.  Nevertheless  the  main  principles  of  the  cen- 
tral administrative  organization  have  remained  substantially  un- 
changed. A  brief  account  of  this  system  and  its  development,  in 
comparison  with  that  of  the  navy  will  serve  to  explain  the  changes 
made  during  the  progress  of  the  war. 

Historical 

Until  the  middle  of  the  nineteenth  century  ;'rmy  administra- 
tion formed  a  confused  medley  of  conflicting  jurisdictions;  and 

76 


ARMY   ADMINISTRATION  77 

authority  was  distributed  on  no  definite  principles  between  the 
commander  in  chief,  the  Secretary  at  War  (not  often  a  member 
of  the  Cabmet),  the  Secretary  of  State  for  War  and  the  Colo- 
nies, the  Secretary  of  State  for  Home  Affairs,  the  ordnance 
board,  and  the  commissariat  (a  department  of  the  Treasury). 
There  was  no  central  control  over  these  separate  offices. 

A<  a  result  of  defects  disclosed  in  the  Crimean  War  a  more 
centralized  system  was  organized.  In  18.5-t  a  fourth  Secretary  of 
Stale,  for  War.  was  provided :  and  a  year  later  the  various  civil 
oepartments  of  the  army  were  transferred  or  absorbed  by  this 
War  Office— including  the  functions  of  the  Secretary  at  War 
the  ordnance  board,  the  commissarir.t.  the  medical  department 
and  the  auditing  staff.  The  commander  in  chief,  however  still 
retained  an  independent  military  control— this  position  being 
held  by  the  Duke  of  Cambridge,  first  cousin  to  the  Queen.  ' 

After  some  minor  changes,  further  reorganization  was  brought 
about  by  statute  and  Order  in  Council  in  1870.  mainly  through 
the  efforts  of  the  Secretary  of  State  for  War.  Edward  Cardwell 
General  control  was  vested  in  the  Secretary  of  State  for  War 
with  three  main  departments:  military,  under  the  commander  in 
chief,  whose  headquarters  were  transferred  to  the  War  Office  ■ 
supply,  including  munitions,  commissariat,  quarters  and  trans- 
port; and  finance.  At  the  same  time  the  period  of  enlistment  in 
the  army  was  reduced  to  a  maximum  of  12  years;  and  a  year 
later  (1871),  the  purchase  of  army  commissions  was  abolished 
by  royal  warrant.  '^ 

In  1888.  by  Order  in  Council,  another  redistribution  was  made 
dividing  the  work  of  the  War  i  .ffice  into  military  and  civil  serv- 
ices, both  subject  to  the  administrative  control  of  the  Secretary 
ot  State  for  War.  In  181»5.  on  the  retirement  of  the  Duke  of 
Cambridge  as  commander  in  chief,  the  duties  and  importance  of 
this  office  were  reduced;  and  the  heads  of  the  several  military 
staffs— the  adjutant  general,  the  quartermaster  general  the  in- 
spects general  of  ordnance,  and  the  inspector  general  of  forti- 

■Owe°^VWe"''r^"Ta'/;^ffi''''  9"'f""'j'';;'  "'   ''•  ^^  ^d-  374  387. 
v^wiii  vmiiier.  1  Hi  it  ar  (mcc.  Fast  and  I'rcsenl,  pp.  16,  17, 


!El.a-e»¥.i 


.'^Sw?:  *iS!jJ^TB6±S;  5«!f  i«i5«W«ffl^/**<"^.  ♦  jeaiS«»:JB^iet«e3af^.'i-flHl 


78 


BRITISH    WAR    ADMINISTRATION 


fications— were  brought  into  direct  relations  with  the  Secretary 
of  State  for  War.  ' 

By  these  measures  the  general  control  and  responsibility  of 
the  Secretary  of  State  for  War  were  increased;  and  the  su- 
premacy of  civilian  and  political  authority  over  the  military  was 
emphasized.  But  on  the  military  side  power  and  responsibility 
were  dissipated ;  while  as  yet  no  provision  was  made  for  the  com- 
prehensive and  systematic  study  of  military  policy  or  the  con- 
duct of  war. 

The  South  African  War  disclosed  serious  defects  in  army  ad- 
ministration: and  after  .ivestigations  and  reports  bv  the  Elgin 
commission  in  1!»02  and  a  committee  headed  by  Lord  Esher  in 
1903-(»4.  important  changes  were  made  in  the  central  organiza- 
tion in  llt()4.  Two  years  later  Ir.  ihe  establishment  of  an  Army 
Council  further  changes  affecting  the  army  as  a  whole  were  made 
under  the  leadership  of  Secreta-y  of  State  for  War  Haldane. 
including  the  establishment  of  a  general  staff,  and  a  reorganiza- 
tion of  the  military  forces. 

The  Army  Council 

The  Army  Council '  was  constituted  by  letters  patent  in  1!)04, 
and  its  organization  and  functions  were  defined  by  Order  in 
Council  of  August  10  of  that  year.  This  bodv  was  organized  on 
hues  similar  to  the  Admiralty  Board,  though  with  some  points 
of  difference.  It  consists  of  the  Secretary  of  State  lor  War  as 
president,  four  military  members,  a  civil  and  a  finance  meml)er. 
and  the  Permanent  Secretary  of  the  War  Office.  The  powers 
and  duties  may  be  executed  by  any  three  members;  and  docu- 
ments may  be  signed  by  an\  two. 

The  Secretary  of  State  lor  War  was  responsible  to  His  Maj- 
esty and  to  Parliament  for  all  the  business  of  the  Army  Council; 
and  the  functions  of  the  military  members  were  not  defined  by 
the  Order  in  Council,  but  were  assigned  from  time  to  time  by 

'  Anson  :  o/>.  cit.,  pp.  387.  388. 
^^^-Co„sl,lulumal  )V„r  Hook.  1916,  p.  63:  Owen  Wheeler:  o^  at.,  pp.  294- 


t. 


mm>x 


t^mis^^Tif^^sm^immM^smammm^immmsim 


ARMY    ADMINISTRATION 


r9 


the  Secretary  of  State.  This  officer  was  therefore,  even  more 
distinctly  than  the  First  Lord  of  the  Admiralty,  the  admin- 
istrative head  of  the  War  Office.  Directly  under  the  Secretary  of 
State  is  his  military  secretary  and  a  selection  hoard,  which  pre- 
sents names  of  officers  for  the  various  commands  and  for  pro- 
motion up  to  the  rank  of  major  general. 

The  four  military  membeiS  of  the  Army  Council  are  definitelv 
appointed  as  Chief  of  the  General  Staff  (who  replaced  the  former 
commanding  general),  the  Adjutant  General,  the  Quartermaster 
(ieneral.  and  the  Master  General  of  Ordnance.  They  were  re- 
sponsible to  the  Secretary  of  State  for  the  administration  of  so 
much  of  the  business  relating  to  the  organization,  disposition, 
personnel,  armament  and  maintenance  of  the  army  as  ma>-  be 
assigned  to  them  by  the  Secretary  of  State.  The  usual  as.sign- 
ment  has  given  to  the  Chief  of  the  General  Staff  supervision  over 
military  operations;  and  his  position  was  thus  in  some  respects 
comparable  to  that  of  the  First  Sea  Lord  of  the  Admiralty, 
though  less  definitely  indicated  by  the  provisions  of  the  Order  in 
Council. 

The  Adjutant  General  has  supervision  over  recruiting,  train- 
ing, education,  discipline  and  organization  of  the  army  and  the 
medical  service.  The  Quartermaster  General  has  charge  of  the 
admnustration  of  transport,  remounts,  veterinary,  ordnance, 
supply  (food,  clothing  and  general  stores),  and  barracks  serv- 
ices. The  Master  General  of  Ordnance  looks  after  the  supply  of 
armament,  including  arms  and  ammunition  and  coast  defenses, 
and  the  manufacturing  departments.  These  assignments  place 
under  each  of  these  members  certain  directorates  more  definitely 
than  in  the  Admiralty. 

The  Finance  Member  of  the  Army  Council  is  responsible  for 
the  financial  services,  accounts  and  contracts.  The  Civil  Mem- 
licr  is  responsible  for  the  non-effective  votes  and  the  territorial 
forces.  The  Secretary  of  the  War  Office  acts  as  secretary  of  the 
Army  Council,  and  is  charged  with  the  internal  administration 
of  the  War  Office. 

Two  Inspectors  General,  acting  under  the  Army  Council  but 


n^iM»!S^«5s.*i5asfe^«?«-j^fi@f^  mms^mf^s:i^m!m!^'^if^:^ 


80 


BRITISH    WAR    ADMINISTRATION 


not  tormmg  part  of  the  War  Office  organization,  were  provided 
to  mspect  and  report  to  the  council  on  the  practical  results  of  the 
m.htary  system  including  the  training,  efficiency  and  equipment 
of  the  troops  fortffications  and  defenses,  and  generallv  on  the 
r eadmess  and  fitness  of  the  army  for  war.  One  Inspector  Gen- 
eral covered  the  home  forces  and  the  other  the  overseas  forces 
n  add,t,ot,  to  the  above  organization  of  the  Army  Council 
and  the  subordmate  directorates,  there  were  also,  before  the  war 

zir  :r ''^ ''''' '"'""  ^^^  °'-^-"«-  -->■  ^-o^hing  a,d 

r  uch  as  h  r-  \  """'"■  °'  -'-^»—  establishments 
(such  as  the  judge  advocate  general,  hospitals,  paymasters,  etc  ) 
and  many  departmental  and  interdepartmental  committees,  both 
permanem  and  temporary,  charged  with  various  special  prob- 

hTnh  K  /°?  '''''  "'  ^'^  ''^"  ^«^-  --  ^"^-t  I20O,  more 
than  half  of  whom  were  civilians,  and  about  500  were  ac  ive  or 
retired  army  officers  or  soldiers. 

War  Office  Organization 
The  general  organization  of  the  British  War  Office  in  1016  is 
-ndicated  by  the  following  outline,  in  which  the  new  position 
nd  d>v.s,ons  created  since  the  beginning  of  the  war  are  gi  •   ,  in 
.tal,cs.^  whde  those  discontinued  or  transferred  are  included  In 

The  Army  Council 
The  Secretary  of  State  for  War 

Military  Secretary 

Selection  Board 
The  Chief  of  the  Imperial  General  Staff 

Director  of  Military  Operations 

Director  of  Staff  Duties 

Director  of  Military  Training 

Director  of  Military  Intelligence 
The  Adjutant  (General  to  the  Forces 

[Director  of  Organization  and  Recruiting! 

[Director  of  Mobilization]  ^^ 


'..  i' H**>,sfeiteJi'5lif5 A. 


ARMY   ADMINISTRATION 


81 


Director  General  of  Recruiting 
Inspector  of  Registration  and  Recruiting 
Director  of  Organisation 
Inspector  of  Temporary  Non-Effectives 
Director  of  Personal  Services 
Director  General  Army  Medical  Service 
Director  of  Prisoners  of  War 
Director  of  Graves  Registration 
The  Quartermaster  General 

Director  of  [Transport  and]  Movements 
Director  of  Remounts 

Director  of  Supplies  and  [Quartering]  Transport 
Assistant  Director  of  Railway  Transport 
Director  of  Equipment  and  Ordnance  Stores 
Director  General  Army  Veterinary  Service 
Inspector  of  Army  Ordnance  Service 
Director  of  Quartering 

Chief  Inspector  Quartermaster  General's  Services 
The  Master  General  of  Ordnance 
Director  of  Artillery 
Director  of  Fortifications  and  Works 
Director  of  Barrack  Construction 
Chief  Technical  Examiner  for  Works  Services 
Inspection  and   Experimental   Staff  and   Research   De- 
partment 
Parliamentary  Under-Secretary  of  State  for  War 
Director  General  of  the  Territorial  Forces 
Comptroller  of  Lands 
Finance  Member  of  the  Army  Council 
Director  of  Financial  Services 
Chief  Paymaster  (Accounts) 
Director  of  Army  Contracts 

Superintendent  Central  Arm\  Pension  Issue  OfUce 
Inspector  of  Army  Pay  Offices 
Secretary  of  the  War  Office 


Director  General  of  Military  Aeronautics 

Director  of  Air  Organization 

Director  of  Aircraft  Equipment 
Judge  Advocate  General's  Office 
Chaplain  General 

Inspectors  of  the  Home  Forces  Appointed  for  the  War 
The  Armv  Medical  Advisory  Board 


^^^iS^S^S^^rWMM 


;.i".'-V;''. 


v4'^-«.«-e*1 


82 


BRITISH    WAR   ADMINISTRATION 


The  Nursing  Board 

[The  Territorial  Forces  Advisory  Council] 

The  Army  Purchase  Commission 

[The  Ordnance  Board] 

[Ordnance  Factories] 

Royal  Army  Clothing  Factory 

Royal  Aircraft  Factory 


The  A:.my 

Before  1914 

Up  to  the  time  of  the  Revolution  of  1689  the  regular  military 
lorces  m  England  were:  (1)  the  feudal  array  (limited  to  brief 
periods  of  service)  which  declined  with  the  commutation  of 
military  service  into  money  payments;  and  (2)  the  trained  bands 
or  mihtia  for  the  maintenance  of  order  and  home  defense  in 
earlier  times  under  the  supervision  of  the  sheriflfs  and  later  un- 
der the  lords  lieutenant  of  the  counties.  From  time  to  time  the 
Crown  raised  other  forces;  but  opposition  to  a  permanent  stand- 
ing army  was  confirmed  by  the  experience  of  the  Commonwealth  • 
and  the  Bill  of  Rights  declared  the  maintenance  of  a  standing 
army  m  time  of  peace  without  the  consent  of  Parliament  to  be 
contrary  to  law. 

•  """"'Til!^'"'!  ^  '^^"'''"^  ^'""y  ^^'  '^^^"  '•^g"I^'-Iv  maintained 
since  1689  under  the  authority  of  the  annual  Army  Acts  which 
provides  for  the  forces  to  be  raised  and  renews  the  code  of  mili- 
tary law  for  the  maintenance  of  discipline.  This  army  has  ordi- 
narily been  recruited  by  voluntary  enlistment;  though  com- 
pulsory service  was  applied  to  the  militia  from  time  to  time 

Additional  forces  were  the  mounted  veomanrv,  placed  on  a 
statutory  looting  in  1S04.  and  the  volunteers,  es'tablished  on  a 
statutory  basis  in  1SC;5.  But  the  militia,  yeomanry  and  volun- 
teers were  largely  transferred  to  the  new  territorial  force,  pro- 
vided for  m  1907.  liable  only  for  home  service.  The  armv  re- 
serve was  first  created  in  18.-,9,  and  was  later  regulate.l  hy  the 
Reserve  Forces  Act  of  lS.s.>,  consisting  of  trained  regular's  re- 
tired after  service;  while  a  special  reserve  was  established  in 


-^wm^'^^v^^ 


ARMY    ADMINISTRATIOX  83 

1007.  to  act  as  a  source  of  supply  for  forces  in  the  field.  Pro- 
vision was  also  made  in  11)07  for  an  expeditionary  force,  to  be 
ready  for  immediate  service  abroad,  comprising  most  of  the 
regular  army  in  Great  Britain. 

In  addition  to  the  regular  and  auxiliary  forces  of  the  home 
army,  there  was  maintained  an  Indian  armv;  and  the  various 
self-governing  colonies  have  also  provided  for  militia  and  other 
forces. 

At  the  beginning  of  the  war  the  numbers  in  the  various 
branches  of  the  military  forces  were  as  follows : ' 

Regular  army,  January  1,  1914: 

Home  and  colonial  establishments...  Kfiiin 

Indian   establishment '.'.'.'.'.'.'.'.'.'.'.'.'.."    78476 

'^°'^' 234,586 

Army  reserve .  ,-•  -^^ 

Special  reserve  ( authorized  SO.OOO)  .'..'.'. T\(m 

Territorial  force  (authorized  315,000) .  . .' 2517ftfi 

National  reserve  (old  soldiers  and  sailors) ...'!.'].' ].'.';; .'  217.'680 

^•""''  t°'»' gTIii? 

Of  these,  alwut  30(5.000  might  be  considered  as  forming  the 
first  line— including  the  regular  troops  of  the  home  and  colonial 
establishments,  and  the  army  reserve  and  special  reserve.  The 
251,000  of  the  territorial  force  might  be  considered  a  .second  line. 
A  large  proportion  of  the  territorials  promptly  volunteered  for 
foreign  service;  and  within  a  few  weeks  about  80,000  of  the 
national  reserve  had  joined  the  regular  army. 

The  original  expeditionary  force  consisted  of  eight  divisions 
Six  divisions  (about  7i'.()00)  were  landed  in  France  at  first;  and 
^he  two  others  crossed  in  October  and  November.  - 

The  total  number  of  regular  army  officers  was  about  lO.OOO, 
and  tlie  ofticers  of  the  territorial  force  about  !),.500;  while  there 
were  about  2.5,000  in  the  Officers'  Training  Corps. 

The  Volunteer  System 
On  the  declaration  of  war.  steps  were  rapidlv  taken  to  au- 
thorize a  large  increa.=e  in  the  army.    The  estimate  in  the  annual 

\IK^V,"",,""1"''^'  ?'"'  '■■"'■■ychpcdm  of  Ih,    liar.  vi.  ,,.  281 
F.  K.  Puckie:  The  Army  Service  Corps  of  the  British  Army.  p.  4. 


T^*3 


.*»JiWmSJ*3f«' K*     l--lJISW*3i-.JBh3»i--a-iTjr. 


84 


BRITISH    WAR    ADMINISTRATION 


army  act  authorized  a  regular  army  of  180,400.  On  August  6. 
r.»14,  an  estimate  authorizing  an  increase  of  r.OO.OOO  was  voted.' 
A  further  increase  of  r.OO.OOO  was  authorized  on  September  10; 
and  an  additional  million  in  November.  Later  a  third  million 
was  authorized;  and  a  fourth  million  on  December  21.  lOir.. 

The  work  of  recruiting  and  enlisting  the  authorized  forces 
proceeded  more  slowly.  On  August  7.  1914,  a  call  was  issued 
for  the  t^rst  contingent  of  100.000,  to  be  men  between  the  ages 
of  1!>  and  ;50.  to  serve  for  three  years  or  the  war.  Circulars  were 
sent  to  the  lords  lieutenant  of  the  counties  and  the  chairmen  of 
the  territorial  forces  county  associations.  There  was  some  mis- 
understanding of  the  situation  and  lack  of  organized  effort ;  and 
it  was  not  until  August  25,  that  Lord  Kitchener  announced  that 
the  first  100,000  had  been  secured.  Three  days  later  a  call  for  a 
second  contingent  of  100,000  was  issued.  The  age  limit  was 
raised  to  35  years  and  an  appeal  was  made  to  married  men. 

On  August  in,  a  Parliamentary  Recruiting  Committee  was 
formed,  consisting  of  nine  members,  representing  different  polit- 
ical parties,  for  the  purpose  of  utilizing  the  machinery  of  the  po- 
litical parties  and  associations,  both  in  London  and  throughout 
the  country,  in  order  to  give  general  assistance  to  the  work  of 
recruiting.     This  committee  worked  through  three  departments : 
canvassing  and  information,  meetings,  and  publications  and  pub- 
licity.   It  continued  active  work  until  the  passage  of  the  military 
service  acts.  '     By  September  15.  1914.  the  total  number  of  re- 
cruits was  announced  to  be  over  500,000.    On  September  17,  a 
new  scale  of  separation  allowances  was  issued ;  and  on  Novem- 
ber 10.  a  new  scale  of  pensions.    On  January  2.  1015,  the  forma- 
tion of  the  f^fth  and  sixth  new  armies  was  announced. 

The  new  forces  were  brought  together  in  part  at  the  various 
permanent  military  camps— such  as  Colchester,  ShorncliflFe,  Al- 
dershot  or  Salisbury  Plain— where  the  barracks  vacated  by  the 
regular  army  were  available  towards  the  accommodations  re- 
quired :  in  part  they  were  scattered  in  camps  and  billets  in  dis- 
tricts not  previously  occupied  by  troops.  During  the  autumn  and 
'  Ubcral  Year  Book,  1917,  p.  157. 


^m 


SeClrfcfS/ 


ARMY    ADMINISTRATION  85 

winter  of  1914.  both  living  quarters  and  equipment  were  often 
lacking ;  and  improvised  substitutes  had  to  be  used  to  a  large  ex- 
tent. The  voluntary  system  of  recruiting  was  said  to  have  been 
a  great  impediment  to  efficiency.  The  flow  of  recruits  was  un- 
even, and  when  slack,  physical  and  mental  standards  were 
lowered:  industry  was  disorganized;  and  in  turn  the  work  of 
training  was  interrupted  by  calls  on  the  armv  for  essential  m- 
dustries. 

In  the  spring  of  lOl.",  a  scheme  of  colliery  recruiting  courts 
was  established  by  the  Home  Secretary:  and  in  June  a  committee 
was  appointed  to  consider  the  readjustment  of  conditions  of  em- 
ployment in  the  distributing  trades  in  Scotland  so  as  to  release 
men  for  enlistment  or  other  national  service?. '  During  1915 
recruiting  was  also  promoted  by  entrusting  the  raising  of  local 
units  to  county  and  municipal  committees,  cooperaiing  with  offi- 
cers appointed  by  the  War  Office.  In  some  places  this  plan  was 
a  pronounced  success.  - 

But  the  need  for  other  measures  became  more  urgent  On 
May  18.  the  age  limit  was  increased  to  40  years,  and  the  height 
standard  reduced  to  5  feet,  2  inches.  On  the  formation  of  the 
Coalition  Cabinet,  steps  were  taken  for  a  more  systematic  canvass 
of  the  population.  On  June  29.  1915,  a  national  registration  bill 
was  introduced  and  rapidly  enacted  into  law.  The  purpose  of 
this  act  was  to  form  a  comprehensive  register  of  the  population 
between  the  ages  of  16  and  05  (with  certain  except  onsi.  and 
their  occupations,  and  to  ascertain  whether  they  were  abl.  and 
willing  to  perform  other  work.  Men  between  the  ages  ■  ;.  inri 
41  were  listed  on  special  blanks,  and  men  engaged  in  gc.ernmr 
work  or  in  essential  war  industries  were  starred. 

Early  in  September  an  interdepartmental  committee  was  .  r. 
ated  to  advise  the  government  as  to  the  best  method  of  utilizn 
the  national  register.     On  the  15th,  Mr.  Asquith  made  a  sta 
ment  that  the  total  number  in  the  army  and  navv  ( including  th. 
enlisted  before  the  war,  reservists,  territorial  forces,  and  speci. 

[  ^'!'"'7/.  y<'<"-  Pook.  1917,  pp.  ISO,  152. 
The  Nineteenth  Century  and  After,  vol.  80,  p.  881, 


?S?-l"'.-«^;-  >:.^J!f*t  »fl» 


■  R55SSKH:!  SSKSiaaS"?  s*:f  2*  e^[?»t;^ 


86  BRITISH    WAR   ADMINISTRATION 

services)  was  not  far  short  of  three  million  men.  Nevertheless 
further  efforts  were  made  to  increase  the  forces.  At  the  end  of 
September  a  labor  recruiting  campaign  was  begun.  Early  in 
October  the  recruiting  service  of  the  army  was  reorganized,  and 
placed  in  charge  of  civilians,  with  the  Earl  of  Derby  as  director 
of  recruiting.  Arrangements  were  made  for  a  canvass  of  the 
"  unstarred  "  men  and  an  examination  of  the  "starred"  list; 
married  and  unmarried  men  were  listed  in  separate  age  groups, 
as  a  basis  for  determining  the  order  of  service ;  and  khaki  armlets 
were  t.  ven  to  those  who  had  enlisted  or  who  had  been  excused 
on  medical  grounds. 

These  measures  were  obvic  \y  an  approach  to  a  policy  of 
conscription;  and  to  meet  objections  Mr.  Asquith  publicly  an- 
nounced on  November  2,  that  married  men  who  offered  their 
services  would  not  be  called  on  unless  substantially  all  unmarried 
men  had  been  secured. 

On  December  4.  the  recruiting  canvass  was  completed ;  and  a 
report  was  made  early  in  January,  with  the  foIlov;ing  results : 

Single  Men         Married  Men 

Number  of  military  age 2,179,231  2,832210 

Number  starred 690,138  915,491 

Number   enlisted 103.000  112,431 

Number  attested— starred 31^,067  449,808 

Number   attested— unstarred 527.933  895,171 

Number  rejected.' 207,000  221.853 

Total 1,150,000  1,679,263 

Number  unaccounted  for 1,029,231  1,152.947 

Deducting  the  number  of  starred  single  men  who  had  attested 
from  the  total  of  starred  single  men.  and  deducting  this  figure 
from  the  number  of  single  men  unaccounted  for  showed  a  total 
of  (>.")  1.1(50  unstarred  single  men  unaccounted  for — about  43 
per  cent.  ' 

Compulsory   Scrz'icc 

The  result  of  this  canvass  led  to  the  introduction  of  compul- 
sory military  service  for  unmarried  men,  in  order  to  fuifil  Mr. 
'  The  Times  History  and  Encyclopedia  of  the  War.  vi,  318. 


i 


ARMY    ADMINISTRATION  g- 

Asquith's  pledge  to  married  met,  who  had  offered  their  services. 
A  b.ll  was  mtroduced  in  the  House  of  Commons  on  Januarv  5. 
19  6.   providmg  that   unmarrie.l   men   and    widowers    without 

tl.\'\     uT\'^"  "^''  "^  ''  ^"^  ''   (^^'^h  certain  exemp- 
tions) should  be  deemed  to  have  enlisted  in  His  Majestvs  forces 
This  was  read  a  first  time  by  a  vote  of  403  to  105 ;  pass'ed  second 
readmg  on  January  12,  l,y  a  vote  of  4.11  to  no ;  and  after  a  brief 

ln7Z\TT  ''?''  '  '""'  ^^^''"^  °"  •^^""^^>-  '''  '-•  -  vote 
of  .383  to  30^  Two  days  later  the  bill  passed  the  House  of  Lords- 

.received  the  Royal  assent  on  January  27  and  came  into  opera- 
tion  on  February  10,  litKi.  ^ 

The  administration  of  the  military  service  law  involved  the 
creation  of  a  .lew  series  of  governmental  agencies  to  pass  on 
cla.m  for  exemption.  Local  tribunals  of  .5  to  25  persons  were 
provided  m  every  loca!  registration  district;  and  from  the  deci! 
sions  o.  these  any  person  could  appeal  to  one  of  the  appeal  tri- 
bunals, f.on,  vvh,ch  on  leave  of  the  appeal  tribunafa  fur- 
ther appeal  could  be  taken  to  the  central  tribunal  for  Great 
riritam. 

By  proclamation  of  February  10,  the  classes  of  unmarried  men 
between  the  ages  of  19  and  30  were  summoned  for  March  - 
further  proclamations  called  up  the  remaining  groups  of  un- 
married men;  on  March  7,  the  attested  married  men  between  the 

TnlV    "'.''  ""'  """^=  ^"^  '''''  ^•^^  ---"-g  classes! 
those  between  the  ages  of  33  and  41.  on  April  27.    On  Mav  o  j 

was  announced  that  the  total  military  and  naval  efJort  exceeded 
five  million  men.  '  '^A>-ccuca 

A  second  military  service  act  was  passed  in  Mav,  including 
al'  unattested  me.  between  the  ages  of  l,s  and  41,  unless  whm 
the  excepted  classes,  in  those  enlisted  in  the  armed  forces  Thi" 
ac  a  so  modified  the  grounds  for  exemption,  and  provided  o 
the  prolongation  ot  expiring  terms  of  service,  and  for  the  medical 
reexamination  of  men  exempted  at  the  first  medical  e.x'm  nt 
t.on.      The  bill  for  this  act  pa.ssed  second  reading  in  the  House 


•stSi^itritTSt.iisi^'WSf^fij' 


88 


BRITISH    WAR   ADMINISTRATION 


of  Con.mons  by  a  vote  of  328  to  30,  and  third  reading  by  a  vote 
cf  250  to  35. 

This  act  closed  some  of  the  means  of  escape  from  military 
service:  but  criticisms  continued  to  be  made  of  the  system  of 
local  tribunals  and  the  provisions  for  exemptions,  exceptions  and 
reservations.  Conflicts  between  different  government  depart- 
ments led,  towards  the  end  of  September,  to  the  appointment  of 
a  Man  Power  Distribution  Board,  to  determine  such  questions  as 
the  allocation  or  economic  utilization  of  man  power,  and  to  di- 
rect the  departments  concerned  to  create  the  machinery  neces- 
sary to  coordinate  their  activities.  A  good  deal  of  improvement 
was  said  to  have  been  effected  by  this  board. ' 

Provisions  for  reopening  the  cases  of  men  who  had  been  ex- 
cepted under  the  earlier  military  service  acts  were  made  in  the 
Military  Services  (Review  of  Exceptions)  Act,  1917. '  A  com- 
mittee on  the  employment  of  consc-'*ntious  objectors  was  estab- 
lished, to  arrange  for  the  most  effective  use  of  this  class  of  those 
excused  from  military  service. 


The  Army  Sepvice  Corps 

The  enormous  expansion  of  the  army  and  the  vast  scale  of 
military  operations  have  necessitated  a  corresponding  develop- 
ment in  the  services  auxiliary  to  the  combatant  forces.  Among 
these  special  attention  may  be  given  to  the  Army  Service  Corps, 
in  charge  of  transport  and  supply. 

Prior  to  1870  the  commissariat  service  for  the  British  army 
had  been  created  afresh  for  each  war,  and  disbanded  when  the 
war  was  over.  In  that  year  the  departments  of  transport  and 
supplv  were  united  under  one  head ;  and  in  1875  the  commissariat 
and  transport  staff  came  into  existence  as  a  united  body.  In 
188S  the  Army  Service  Corps  was  reorganized. ' 

When  war  was  declared  a  plan  of  organization  previously  pre- 
pared was  put  into  force,  under  which  all  contracts  and  pur- 

'  The  Times  History  and  f-ncxchpcdia  of  the  War,  x,  ch.  113,  pp.  350,  353. 

•  7  Goo.  V.  cli.  12. 

"  The  Times  History  and  Encyclopedia  of  the  War,  iv,  ch.  66,  p.  282. 


ra^nriXWHimpVHKV!ICVnBB»<!rrT£«I  I 


SWr»VBk'iO^*Sf>-»K^>»'.'L««aB!«JP 


3 


ARMY   ADMINISTRATION  gg 

chases  were  taken  over  by  the  War  Office,  and  all  food,  forage 
and  other  stores  were  subjected  to  rigorous  analysis  and  inspec- 
t.o.>.  Magazines  were  established  in  home  districts,  with  special 
depots  for  the  army  abroad,  including  several  home  bases  and 
also  bases  in  France-the  latter  at  first  at  Boulogne,  later  at 
Amiens.  Havre  and  St.  Nazaire.  '  Advance  bases  were  also  estab- 
lished, and  field  depots  at  the  railheads. 

The  problem  of  railway  transportation  became  one  of  special 
importance.    At  the  beginning  of  the  war  the  government  took 
control  of  all  the  railways  in  Great  Britain.    These  were  operated 
by  an  executive  committee  of  railwav  managers,  officially  con- 
nected with  the  Board  of  Trade,  cooperating  with  the  War  Office 
and  the  Army  Transport  Service.     Prominent  railway  officials 
were  appointed  to  important  positions  in  the  War  Office  •  Sir  Guy 
Granet.  general  manager  of  the  Midland  Railwav,  became  Deputy 
Director  General  of  Military  Railways.     Sir 'Eric  C.  Geddes 
deputy  general  manager  of  the  Northeastern  Railway  after  serv- 
ing as   Deputy   Director  General   of   Munitions    Supply,    was 
knighted  m  1916  and  made  Director  General  of  Movements  and 
Railways,  and  Director  General  of  Communications  in  France 
Later  he  was  transferred  to  the  Admiralty,  and  he  was  succeeded 
at  the  War  Office  by  Sir  Guy  Granet.     Mr.  Thornton,  general 
manager  of  the  Great  Eastern  Railway,  became  Honorable  Lieu- 
tenant Colonel  of  the  Engineer  and  Railwav  Staflf  Corps    and 
Deputy  Director  of  Inland  Waterways  and  Docks  ' 

One  of  the  notable  features  of  the  war  has  been  the  develop- 
ment of  motor  transport  for  the  armies  in  the  field  After  the 
South  African  War.  Great  Britain  (like  France  and  Germanv) 
adopted  a  subsidy  plan  to  ensure  a  supply  of  motor  vehicles  for 
use  in  war.  A  permanent  mechanical  transport  committee  was 
formed  at  the  War  Office,  connected  with  the  transport  branch 
under  the  Director  of  Transport  and  Movements,  in  the  Quarter- 
master General's  Department.  In  August.  1014.  there  was  a  re- 
;  Ibid.,  p.  292. 

.  .•'■  A.  McKeiuie:  British  Hailwaxs  and  Ih,-  U'nr     Tt,«  ,  i    •■ 
Urit.sh   railv.ays    under   government   comrol    Jill    k„    ,      aJministration  of 
another  chapter.  vcrnmcni   control    will   be    further    discussed    in 


4 


>%«K£«>9Hre9l)R\ft;i9l^in-'IA  -*" 


tPf^tftmiiMmm^  iiLU^  "■■iiirB»»iM>»iii'H'!».»^\>"^"»aatfm<yj"<r^!S'/ 


90 


BRITISH    WAR   ADMINISTRATION 


I*..-. 


organization,  and  this  was  transferred  to  a  newly  constituted 
mechanical  transport  branch,  under  the  Director  of  Supplies  and 
Transport.' 

Subsidized  vehicles  and  their  drivers  were  first  mobilized. 
Then  other  vehicles  were  impressed  into  service,  and  later  the 
whole  output  of  British  factories  able  to  produce  suitable 
machines  was  requisitioned.  For  the  first  year,  the  main  depot 
was  in  South  London ;  but  later  a  tract  of  land  in  the  western 
district  was  secured.  The  organization  for  the  supply  of  acces- 
sories and  spare  parts  had  its  headquarters  in  London. 

A  variety  of  special  types  of  vehicles  was  developed — includ- 
ing motor  lorries  or  trucks  for  carrying  supplies,  motor  ambu- 
lances, motor  tractors  for  moving  heavy  guns,  and  armored  cars 
for  fighting  purposes.  The  last  named  began  with  armoring  or- 
dinary touring  cars;  later  special  armored  cars  were  built, 
culminating  in  the  caterpillar  "  tanks,"  the  design  for  which  was 
worked  out  by  the  Director  of  Naval  Construction.' 

War  Office  Committees' 

Among  the  hundreds  of  committees  creat.  d  to  deal  with  special 
war  problems,  the  following  connected  with  the  army  and  the 
War  Office  may  be  noted : 

In  addition  to  the  parliamentary  and  local  recruiting  commit- 
tees, other  committees  established  to  cooperate  in  raising  the  new 
armies  included  those  on  Retail  Trade  and  Enlistment,  the  En- 
listment of  Aliens  of  .Allied  Nationality,  the  Release  of  Railway- 
men  for  Military  Service,  and  the  Reserved  Occupations  Com- 
mittee. 

A  Prisoners  of  IFar  (British)  Treatment  by  the  Enemy  Com- 
mittee, of  ten  members,  was  organized  in  September.  1!»15,  to 
collect,  verily  and  record  information  as  to  British  subjects  made 
prisoners  of  war. 

'  The  Times  Histor\  and  Encyclopedia  of  the  War,  x,  ch.  160,  pp.  283-284. 
'  Ibtd..  pp.  290-298   ■ 

'  W^eral  Vear  Book,  1917;  Lists  of  Committees,  etc.,  in  Parliamentary 
Papers 


tsLx^j^x}!imt^:msz^7*^.^fXJiSiCKji^ii.'7j'K-mr~jej  jotux^''  ^aBarTsvi^/^BQi 


ARMY   ADMINISTRATION 


91 


A  War  Office  Expenditures  Committee,  of  seven  members, 
was  provided  in  January.  1016,  to  consider  possibilities  of  econ- 
omy in  army  expenditure. 

An  Army  Canteen  Committee  was  created  in  April,  1010,  con- 
sisting of  sixteen  members,  with  representatives  of  the  military 
commands  in  the  United  Kingdom. 

A  Soldiers'  Liabilities  Committee,  of  twenty-three  members. 
was  appointed,  in  May,  1010,  as  an  advisory  body  to  deal  with 
questions  of  principle  and  the  administration  of  the  scheme  for 
enabling  soldiers  to  meet  their  civil  liabilities.  This  seems  to 
have  been  expanded  into  the  Military  Service  (Civil  Liabilities) 
Department. 

A  H^ool  Committee  was  created  in  August,  1910,  to  advise 
the  War  Department  on  matters  arising  out  of  the  purchase  and 
distribution  of  English  wool.  This  committee  consisted  of  four 
representatives  of  agriculture,  three  Bradford  merchants,  three 
country  merchants,  six  spinners  and  manufacturers,  and  three 
official  representatives  of  the  Board  of  -Agriculture,  the  Board  of 
Trade  and  the  War  Trade  Department. 

A  Prisoners  of  War  (Central)  Committee,  of  eight  members, 
was  formed  in  September,  1010.  to  centralize  and  coordinate 
measures  for  the  relief  of  prisoners  of  war. 

A  Prisoners  of  War  (Employment)  Committee  was  reconsti- 
tuted in  January,  1017,  to  consider  applications  for  the  employ- 
ment of  prisoners  of  war. 

Other  committees  and  agencies  were  provided  on  Army  Con- 
tracts, .'\rmy  Supplies  Commercial  Department,  Army  Chaplains 
Advisory  Committee,  Interdepartmental  Army  Chaplains  Advi- 
sory Committee,  fvxpeditionary  Forces  Canteen  Committee, 
Expeditionary  Forces  Sanitary  Committee,  Permit  Office.  Pris- 
oners of  War  Help  Committee,  ProuKnion  (jf  Officers,  Distri- 
bution of  War  Trophies,  Haw  Materials  Finance  Branch,  Ke- 
quisitioning  (Carriage  of  Foodstuffs),  and  Soldiers"  Dependents 
Appeal  Assessments. 

The  War  Office  was  also  represented  on  other  interdepart- 
mental committees  and  commissions,  such  as  the  Committee  on 


4 


^nv 


92 


BRITISH    WAR   ADMINISTRATION 


the  Official  Histo;  of  the  War,  the  Defense  of  the  Realm  Regu- 
lations Committee,  the  National  Register  Committee,  the  Pris- 
oners of  War  Interdepartmental  Committee,  the  Commission  In- 
ternationale de  Razitaillement,  and  the  Dardanelles  and  Mesopo- 
tamia Commissions. 


m 


Medical    lesearch  Committee  ^ 

Brief  mention  may  be  made  of  some  phases  of  the  work  of 
the  Medical  Research  Committee.  During  1915  special  atten- 
tion was  given  to  an  investigation  of  cerebrospinal  fever,  in  a 
central  laboratory  at  the  Royal  Army  Medical  College,  with  37 
district  laboratories  at  various  points  throughout  the  country. 
Another  investigation  of  dysentery  led  to  the  discovery  of  a 
remedy  for  curing  the  dysentery  carrier.  The  campaign  against 
typhoid  fever  was  an  important  part  of  the  work;  and  other 
studies  resulted  in  the  discovery  of  a  valuable  new  antiseptic. 

Graves  Registration 

A  special  branch  or  directorate  of  the  Adjutant  General's  de- 
partment was  established  to  take  charge  of  the  registration  and 
care  of  the  graves  of  British  soldiers.  This  was  made  resjionsible 
not  only  for  graves  in  France  and  Belgium,  but  also  for  those  in 
Egypt,  the  Balkans  and  Mesopotamia,  and  for  recording  those  in 
the  United  Kingdom.  In  March,  1917,  the  number  of  graves 
registered  in  France  and  Belgium  was  more  than  150,000. 

In  January,  191fi,  on  the  proposal  of  the  army,  the  Prime 
Minister  appointed  a  National  Committee  for  the  Care  of  Sol- 
diers' Graves,  to  take  over  the  work  of  tl  ■  directorate  after  the 
war,  with  the  Prince  of  Wales  as  chai  nan.  Commissioners 
were  ap])ointed  !)y  the  Dominion  to  serve  on  this  committee,  and 
also  a  representative  from  India. 

At  the  Imperial  War  Conference,  in  the  spring  of  1917,  a  reso- 
lution was  adopted  for  an  Imperial  War  Graves  Commission,  to 

'  The  Times  History  and  Encyclopedia  of  the  H'ar,  xi,  ch.  108,  pp.  54,  68. 


ARMY    ADMINISTRATION 


93 


be  constituted  by  Royal  Charter;  and  the  draft  of  a  charter  for 
this  purpose  was  considered  and  revised. 

A  memorandum  from  the  Director  of  Graves  Registration  was 
presented  to  the  Imperial  Conference,  reporting  that  the  French 
Government  had  undertaken  the  cost  of  providing  in  perpetuity 
the  land  for  the  graves  of  Allied  soldiers  in  French  territory ;  and 
that  negotiations  were  under  way  with  regard  to  Belgian  terri- 
tory. ' 


Central  Administration 

Dissatisfaction  with  the  organization  of  the  War  Office  and 
the  central  administration  of  the  army  has  been  actively  ex- 
pressed from  time  to  time;  and  important  changes  both  in  per- 
sonnel and  organization  have  been  made  during  the  progress  of 
the  war.  Commenting  on  the  administrative  changes  of  the 
twenty  years  before  the  war,  one  writer  has  said :  ^ 

The  changes  which  have  taken  place  in  the  constitution  of  the  supreme 
authority  over  the  armed  forces  of  the  Crown  since  the  resignation  of  the 
late  Duke  of  Cambridge  have  not  yet  brought  about  a  permanent  settlement, 
and  a  tendency  exists  to  create  different  mechanism  for  each  successive  chief* 
of  the  military  system.  Earl  Roberts  had  not  the  same  position  precisely 
as  Viscount  Wolseley;  the  creation  of  the  .Army  Council  by  the  Balfour 
administration  was  a  revolutionary  change,  which  in  turn  was  somewhat 
altered  for  the  benefit  of  each  successive  Chief  of  the  General  Staff,  Sir 
Neville  Lyttleton.  Lord  Nicholson,  and  Viscount  French ;  while  the  appoint- 
ment of  Lord  Kitchener,  at  the  beginning  of  the  present  war  entirely  changed 
the  constitution  of  the  War  Office.  Kitcheners  administration  was  more- 
over profoundly  affected  by  fresh  arrangements  introduced  during  his  tenure 
of  office,  and  these  arrangements  have  had  to  undergo  further  modifications 
on  the  accessions  of  a  new  Secretary  of  State  for  War.  In  short  there  seems 
no  appearance  of  finality  in  an  organization  which  the  highest  interests  of 
the  state  require  to  be  securely  fixed  on  a  sound  basis  for  peace  and  war, 
and  which  should  proceed  uninterruptedly  with  its  all  important  functions 
undisturbed  by  changes  and  chances  of  a  nature  to  destroy  the  continuity 
and  therefore  the  efficiency  of  its  work 

'i^il'^i^'^  ^'■°'"  ^^^  Proceedings  of  the  Imperial  War  Conference    lOn 
pp.   1J0-IJ4.  '  ■ 

iqia't"''.  ?t"'>f:  '"  '^'""  ^I"''"''-""'  Century  and  After.  80:  867-880  (October, 
1916).       The  Ministry  of  War  and  the  Military  Executive." 


u 


BRITISH    WAR   ADMINISTRATION 


Criticism  tended  to  be  directed  mainly  at  what  was  called  the 
overcentralization  of  responsibility  in  the  War  Office  in  the  Sec- 
retary of  State  for  War.    The  writer  above  quoted  states : 

The  principal  authority  at  the  time  was  vested  in  a  slovenly  makeshift 
manner  in  the  Secretary  of  State  for  War,  who  was  apparently  expected  to 
do  the  double  task  of  being  War  Minister  and  of  commanding  the  army,  with 
the  natural  result  that  the  duties  of  both  officers  were  very  imperfectly  per- 
formed. The  War  Minister  failed  to  arrange  for  the  vital  requirements  of 
the  army  in  the  matter  of  munitions  during  that  first  fateful  winter,  and 
the  departments  of  organization  and  command  were  managed  in  the  most 
reckless  and  haphazard  manner.' 

Another  writer  states  that 

More  and  more  the  war  outgrew  the  possibilities  of  an  organization  the 
central  feature  of  which  was  the  concentration  of  responsibility  in  Lord 
Kitcheners  hands,  while  every  day  increased  the  necessity  for  delegation 
of  responsibility.' 

It  is  worth  noting  that  along  with  this  criticism  of  the  army 
administration  for  excessive  centralization  went  an  active  criti- 
cism of  the  government  as  a  whole,  and  at  times  of  the  Admiralty, 
for  a  lack  of  centralized  responsibility.  These  different  lines  of 
criticism  seem  to  conflict  with  each  other;  and  it  may  be  that 
deeper  than  any  general  principle  of  administrative  organization 
was  the  magnitude  of  the  problems  to  be  met,  and  the  difficulty 
of  finding  the  most  effective  men  for  the  leading  positions. 

In  any  event,  along  with  the  centralizing  tendencies  in  the 
Cabmet,  there  has  gone  a  movement  in  the  opposite  direction  in 
the  War  Office.  The  creation  of  the  Ministry  of  Munitions  in 
May,  l!il,5,  was  the  first  large  encroachment  upon  the  powers  and 
responsibilities  of  the  Secretary  of  State  for  War,  placing  in  a 
new  and  distinct  department  control  over  the  supply  of  arms  and 
munitions.  The  reorganization  of  the  recruiting  service  under 
the  Far!  of  Derby,  although  it  continued  to  form  part  of  the 
War  Office  organization,  seems  to  have  involved  a  substantial 
delegation  of  power  from  the  War  Minister  to  the  civilian 
Director  General  of  Recruiting. 

'  Cecil  Hattiiie.  of>.  cit. 

'  The  Times  History  and  Encyclopedia  of  the  War,  x,  ch.  163,  p.  J44. 


...iT-^-i.  .  «r>        Ml      IMII     III    illll   I     T    111   111  III— ^ ' ' ^ 


ARMY   ADMINISTRATION 


95 


Just  before  Christmas,  1915,  the  Imperial  General  Staff  was 
reorganized,  with  Sir  William  Robertson  as  its  Chief.  Shortly 
afterwards  an  Order  in  Council  (January  27,  1916)  provided 
that :  "  The  Chief  of  the  General  Staff  shall  be  responsible  for 
issuing  the  orders  of  the  government  in  regard  to  military  opera- 
tions." This  meant  that  Robertson  would  enjov  far' greater 
powers  than  the  Chief  of  the  General  Staff  had  hitherto  en- 
joyed, and  that  orders  to  commanders  would  go  out  in  his  name 
and  no  longer  in  that  of  the  Secretary  of  State  for  War.  Even 
after  this,  the  conditions  at  the  War  Office  remained  the  subject 
of  severe  criticism.  ' 

Commenting  on  conditions  in  the  latter  part  of  1916,  one 
writer,  already  quoted,  has  stated : 

At  the  present  moment  the  supreme  authority  is  vested  upon  sounder 
prmciples  ni  the  Chief  of  StaflF  and  the  Commander  of  the  Army  in  France  • 
but  the  arrangement  would  seem  to  be  temporary,  nor  is  it  quite  clear  which 
of  these  two  officers  is  the  chief,  or  whether  they  are  in  a  manner  equal  in 
authority  withm  their  own  spheres.  There  is  in  fact  no  military  chief  of 
the  whole  army.  The  plan  too  of  having  the  .Ministry  of  .Munitions  inde- 
pendent of  the  Mmistry  of  War  is  not  logical,  and,  though  it  may  have  been 
necessary  as  an  emergency  measure,  it  should  not  be  permanent.  . 

The  mechanism  of  the  supreme  command  should  be  vested  in  a  smgle 
military  officer.  It  is  not  of  the  greatest  importance  whether  he  is  called 
Commaiuler  in  Chief  or  Inspector  General.  He  shculd  have  the  collabora- 
tion of  a  principal  lieutenant,  his  Chief  of  Staff.  Commanders  of  armies 
m  tht  field,  as  of  military  districts  at  home,  should  be  subject  to  his  author- 
ity, though  of  course  a  competent  chief  will  delegate  wide  powers  as  the 
case  may  command.  The  heads  of  administrative  departments,  the  Adjutant 
General.  Quartermaster  General.  an<i  the  head  of  the  Ordnance  Department 
have  no  logical  right  to  sit  on  an  Army  Council,  to  confer  with  the  Cabinet 
or  to  share  in  the  executive  command.  They  have  enough  to  do  to  control' 
the  great  departments  under  the  supreme  commander  of  the  army.  Kut 
such  a  Commander  in  Chief  can  not  either  in  peace  or  war  dispense  with 
the  help  of  assistants  which  in  Germany  are  known  as  the  General  Staff  at 
Headquarters."' 

Alter  discussing  the  abuse  of  the  term  General  Staff,  and  the 
unsatisfactory  method  of  selecting  and  training  staff  officers, 
this  writer  adds : 


'  /.'"■.,^i""f  History  and  Encyclopedia  of  the  War, 
Cecil  Battine,  op.  cit. 


X,  ch.  16J,  p.  344. 


96 


BRITISH    WAR    ADMINISTRATION 


t    ! 


There  is  one  concrete  reform  which  should  be  de'.ayed  no  longer.  The 
titular  military  chief  of  the  army  should  alone  be  responsible  for  the  pro- 
motion of  all  the  officers  of  the  army. 

On  the  tragic  death  of  Lord  Kitchener  in  June,  191C,  Mr. 
Lloyd  George  was  transferred  from  the  Ministry  of  Munitions 
to  be  Secretary  of  State  for  War.  The  experiment  of  a  mili- 
tary officer  as  the  administrative  head  of  the  War  Department 
was  thus  abandoned ;  and  a  return  made  to  the  usual  British  prac- 
tice of  placing  this  office  in  the  hands  of  a  civilian  with  political 
experience.  This  custom  was  continued  when  Mr.  Lloyd  George 
became  Prime  Minister,  by  naming  as  Secretary  of  State  for 
War  the  Earl  of  Derby,  who  had  been  Director  General  of  Re- 
cruiting and  later  Parliamentary  Under-Secretary  for  the  War 
Office. 

The  Allied  War  Council  established  in  the  latter  part  of  1917 
with  a  permanent  staff  of  military  officers  at  Versailles  raised 
questions  as  to  the  relative  authority  of  the  joint  Allied  body 
and  the  general  staffs  of  the  several  countries.  At  a  meeting  of 
the  Allied  War  Council  in  February,  1918,  it  was  decided  that 
the  joint  staff  should  exercise  executive  authority  and  that  the 
British  representative  should  be  a  member  of  the  .^rmy  Council. 
This  led  to  the  retirement  of  General  Robertson  as  Chief  of  the 
British  General  Staff,  as  he  was  unwilling  to  divide  authority 
with  the  joint  staff  or  to  serve  as  the  British  member  on  the 
joint  staff.  General  Wilson,  who  had  l)eefi  serving  as  British 
representative  on  the  joint  staff,  was  appointed  as  Chief  of  the 
British  General  Staff,  and  General  Rawlinson  as  British  repre- 
sentative on  the  joint  staff. 

Definite  information  as  to  the  distribution  of  authority  be- 
tween the  joint  staff  and  the  general  staffs  of  the  several  govern- 
ments is  still  lacking.  The  new  arrangement  was  supported  as  a 
necessary  measure  for  centralizing  control  over  the  military 
movements  of  the  .Allied  forces.  But  it  also  appeared  that  the 
Chief  of  the  British  General  Staff  had  not  been  made  distinctly 
subordinate  to  the  joint  .Mlied  staff;  and  so  far  as  the  British 
army  was  concerned  the  new  arrangement  appeared  to  involve  a 


ARMY    ADMINISTRATION  97 

dual  set  of  coordinate  authorities,  and  a  further  decentraliza- 
tion of  power. 

Following  the  German  attacks  beginning  in  March,  1918,  a 
more  complete  centralization  in  the  military  command  oi  the 
Allied  armies  in  Western  Europe  was  accomplished  by  the  selec- 
tion of  General  Foch  as  Commander  in  Chief.  To  the  unity  of 
command  thus  established  has  been  ascribed  much  of  the  suc- 
cess of  the  military  operations  during  the  latter  part  of  this  year, 
even  by  some  who  had  criticized  the  partial  measures  taken 'dur- 
ing the  previous  winter. 

Attention  may,  however,  be  called  to  the  problem,  thus  far 
not  publicly  discussed,  of  reconciling  the  criticism  of  the  over- 
centralization  in  the  hands  of  Lord  Kitchener  with  the  com- 
mendation of  the  concentration  of  authority  in  Marshal  Foch. 


I 


CHAPTER  VI 
Munitions  and  Aircraft 

The  magnitude  of  military  operations  and  the  development  of 
new  devices,  materials  and  methods  of  warfare  in  the  present 
contest  has  vastly  increased  the  problem  of  supplying  the  com- 
batant forces  with  their  fighting  equipment ;  and  the  attempts  to 
solve  this  problem  have  involved  the  creation  of  new  adminis- 
trative agencies,  and  a  tremendous  expansion  in  government  in- 
dustries and  government  control  of  private  plants.  After  a  va- 
riety of  temporary  expedients  had  been  tried,  a  new  government 
department  of  the  first  rank  was  established,  under  a  Minister 
of  Munitions,  to  deal  with  the  supply  of  arms  and  munitions. 
Later  the  growing  importance  of  aircraft  led  to  the  formation 
of  another  government  department  for  this  work.  .  This  chapter 
wdl  present  the  steps  leading  to  the  creation  of  these  novel  de- 
partments of  public  administration,  and  their  organization  and 
activities. 

Munitions  Administration 
The  First  Period 

Under  the  organization  existing  at  the  outbreak  of  the  war.  the 
British  Government  had  several  ordnance  factories — at  Wool- 
wich. W'altham  Abbey,  and  Enfield  Lock— for  the  manufacture 
of  arms  for  the  army,  under  the  department  of  the  Master  Gen- 
eral of  Ordnance  in  the  War  Office.  There  was  also  a  Royal 
Aircraft  I'actory.  The  Admiralty  had  other  ordnance  factories 
for  naval  armament.  But  munitions  of  war  were  also  furni.shed 
to  a  large  extent  by  contracts  with  five  or  six  large  private  es- 
tablishments. 

In  the  autumn  of  l!n4,  after  consultation  with  the  leading 
armament  concerns,  it  was  decided  to  extend  greatly  the  system 

98 


'^mKe9msrf!^tsk!i^'-i>(£timmcT 


jtti'iMf&iSiiShiisxraMSSisi^ieifiSBt'm^ 


I 

it 


MUNITIONS   AND   AIRCRAFT  99 

Of  subcontracting-lettinfj  out  the  less  difficult  work  to  other  con- 
cerns uh,ch  could  adapt  their  plants  most  readily.  Under  this 
pohcy  rom  ..500  to  3.000  business  concerns  were  involved  in  the 
production  of  munitions. 

evidenl'lherT'  ''"  '"^''^^^'"'^^--"g  ^^^  -PPHe-s  became  more 
evident  there  was  appointed,  early  in  February.  V.nr..  a  Board  of 

he  best  way  to  enlarge  the  output  from  the  engineering  and 

In"-    '"tS  :?'f  ^•^^"'^-     T''^-  ---ittee  reported.  on^Feb 

?r        u  ,  "^  ''■^'  ^  P""^'^"^  ^"''  continuously  increasing 

need  for  shells  and  fuses  ";  and  recommended  a  rearrangem  nt 

of  piece  work  terms  and  a  greater  employment  of  female  labor  ■ 

was"forme  iT  r,""^:  r  "■'^"''''°"  ^■■'''""^'  °^  fi-  '"--bers 

,   u  ?     .       '^'  '"'''  ^^^^iions  of  production  in  engineering 

and  shipbuilding  establishments  ^  gmeenng 

of  ^v  ^?  ''•  "  T"  '^"^''"'  ''^''°"^'  ■^''--^>-  Committee, 
of  SIX  members,  was  formed.  "  to  increase  and  accelerate  the  out- 
put and  to  see  that  the  provisions  of  the  Treasury  agreement 
are  observed  in  -  ^r  work."  '  "srccmenr 

An  amendi..        o  the  Defense  of  the  Realm  Act.  passed  in  the 
same  month   ex    .ded  the  powers  of  the  govern-       '       r  muni 
tions  factories.    Regulations,  issued  on  March  ..  ZZ 

^orkmen    to  requisition  the  outpr^  and  take  possession  of  fac 
tones  and  to  regulate  their  operation 

th  a  W  ar  Office  Committee  was  announced.  "  to  take  the  neces- 

^^Z^'ir      ]  '""I  ^'''''^"^'  '^'^°'-  •''^  ^^y  '-  -nuired  to 
me T.  '"^^  ■■  "^  "'""■''""^  "^'  ^^-^^  -^h^"  '>^'  ^"fficient  to 

meet  .II  reci„irements."     Mr.  G.   M    Booth,  an  energetic  shin- 

k™'  Th-^"  -^■■- --•-  of  this  committee,  whid.  became 
knoun  In  h.s  name.  This  committee  was  in  the  main  a  recniit- 
ng  agency  for  the  armament  works,  competing  for  men  w-  th 
the  recruiting  agents  for  the  army.     A  few  da,"  later  a  No    h 

/  tir     I  »«i^c    f-tt  ft...... I     r-  ■  .. 

403 


^  The  Times  History  and  Encyclopedia  of  the  War, 
'Liberal  Year  Book,  1917. 


V.  cli.  93,  pp.  304.  402, 


>  ^^^stsfrmti&v-^sK9^^saaKfm^smi:msfmFS<is.- 


:-:^^.. 


==ST! 


100 


tritijII  war  administration 


East  Coast  Arniaments  Committee  was  formed,  representing 
the  government  departments,  the  employers  and  the  men.  Other 
local  munitions  committees  were  formed  at  Leeds,  Sheffield, 
Birmingham,  Glasgow,  Dublin  and  elsewhere.  ' 

Several  days  afterwards  a  general  Munitions  of  War  Com- 
mittee was  established,  with  the  Chancellor  of  the  Exchequer 
(Mr.  Lloyd  George)  as  chairman,  and  including  representatives 
of  the  Admiralty,  the  War  Office,  the  .Treasury,  the  Board  of 
Trade,  and  other  departments;  to  ascertain  the  extent  of  the 
problem,  and  to  map  out  the  country  and  to  draw  every  available 
factory  and  workshon  into  the  scheme.  This  formed  a  large 
step  towards  setting  np  a  new  department:  and  left  the  War 
Office  to  concentrate  upon  the  tank  of  organizing  and  training 
the  new  armies. 


The  Ministry  of  Munitions 

On  the  formation  of  the  Coalition  Cabinet,  Mr.  Lloyd  George 
was  transferred  to  the  new  position  of  Minister  of  Munitions. 
An  act  establishing  the  Ministry  of  Munitions  was  soon  passed, 
and  became  law  on  June  0,  191,5;  and  was  followed  on  June  IG 
bv  an  Order  in  Council  defining  the  scope  of  the  office.  On  July 
•2.  a  more  comprehensive  Munitions  of  War  Act  went  into  force. 

The  .Ministry  of  Munitions  Act-  is  brief,  providing  for  the 
appointment  of  a  Minister  of  Munitions,  who  "  shall  have  such 
administrative  powers  in  relation  to  the  supply  of  munitions  for 
the  present  war  as  may  be  conferred  on  him  by  His  Majesty  in 
Council,"  or  as  may  be  transferred  from  a  government  depart- 
ment or  authority.  The  Minister  of  Munitions  may  appoint  such 
secretaries,  officers  and  servants  as  he  may  determine.  The  Min- 
ister and  two  secretaries  may  be  members  of  the  House  of  Com- 
mons. The  Ministry  is  to  cease  not  more  than  twelve  months 
after  the  cessation  of  the  present  war.  Munitions  are  defined  as 
'•  anything  required  to  be  provided  for  war  purposes,  d  id  include 

'  The  Times  History  and  Encyclopedia  of  the  War,  v,  pp.  307.  403-406. 
"  5  and  6  Geo.  \',  c.  51. 


MUNITION'S   AND   AIRCRAFT 


101 


arms,  ammunition,  warlike  stores  or  material,  and  anything  re- 
quired for  equipment  or  transport  purposes  or  for  or  in  connec- 
tion with  the  production  of  munitions." 

The  Munitions  of  War  Act '  is  important,  not  only  as  the  work- 
ing basis  for  the  new  Ministry,  but  as  a  document  making  a  far- 
reaching  extension  of  government  control  of  industry,  including 
both  labor  and  the  profits  of  the  employer.  =    The  act  is  divided 
into  three  parts :    Part  I  makes  provisions  for  the  settlement  of 
labor  disputes  in  munitions  works,  prohibits  strikes  and  lock- 
outs in  certain  cases,  and  provides  for  the  fxtension  of  these  pro- 
visions by  Royal  Proclamation  to  other  t'lan  munitions  work,  if 
prejudicial  to  the  supply  of  munitions  of  war.     Part  II  deals 
chiefly  with  the  limitations  on  profits,  the  suspension  of  rules  and 
practices  restricting  output,  and  the  employment  and  protection  of 
munitions  workers  in  controlled  establishments.     Xet  profits  are 
limited  to  one-fifth  more  than  the  standard  amount,  for  the  two 
financial  years  before  the  war,  with  provisions  for  referees.   Dif- 
terences  between  employers  and  employes  and  questions  as  to  re- 
strictive .ules  and  practices  are  to  be  referred  to  the  Board  of 
Trade.    Part  III  includes  provisions  authorizing  the  Minister  of 
Munitions  to  obtain  information  as  to  persons,  machines  and 
works  in  any  establishment;  and  provides  for  munitions  tribu- 
nals, one  class  to  deal  with  all  offenses  under  the  act.  and  the 
other  to  deal  on!-   with  any  contravention  of  the  regulations  in 
controlled  estab.ishments— these  tribunals  to  be  chosen  equally 
from  panels  representing  employers  and  employes. 

An  amending  act  of  January  27,  l!»lti,  made  further  provi- 
sions for  the  control  of  wages,  hours  of  labor  and  conditions  of 
employment;  extended  the  definition  of  munitions  work  to  in- 
clude ships  or  vessels,  and  certain  classes  of  build-'ngs  and  public 
utilities;  defined  the  powers  of  inspectors;  and  provided  for  ap- 
peals from  the  decisions  of  munitions  tribunals  to  a  judge  of  the 
high  court.  ^ 


'  S  and  6  Geo.  V,  c.  54. 

'  The  Political  Quarterly.  No.  7  (1916) 

•  5  and  6  Geo.  V,  c.  99. 


155. 


ms&^s^A  "^•jT'TrifT^i'iirTiMgTi'T'niiBnTfr'^^'m 


^%^7Jnv>rn?£SISSS^R^ 


.1''5!r>^'-->i- 


102 


BRITISH    WAR    ADMINISTRATION 


Administrative  Organization 

The  new  Ministry  has  to  deal,  on  the  one  side,  with  the  supply 
of  material,  with  factory  equipment  and  with  the  correlation  of 
output.  On  the  other  side,  it  is  concerned  with  the  supply  of 
labor  and  the  conditions  of  employment,  and  also  with  the  limita- 
tion of  profits.  Both  on  the  side  of  material  and  mechanical  or- 
ganization, the  Ministry  of  Munitions  has  exercised  an  influ- 
ence of  great  importance  not  only  on  the  immediate  situation, 
but  also  on  the  future  of  industrial  production  and  the  relations 
of  labor  and  capital  to  one  another  and  to  the  government. 

To  carry  out  its  manifold  functions  a  complex  a. id  many  sided 
organization  has  been  developed,  both  at  the  central  offices  and  in 
local  districts.  The  nucleus  of  the  Ministry  was  formed  by  the 
staff  of  the  Cabinet  Com.nittee  on  Munitions  with  that  of  the 
Armaments  Output  Committee  established  at  the  •  /ar  Office  un- 
der Lord  Kitchener.  To  these  were  rapidly  added  some  older 
sections  of  the  War  Office  organization,  such  as  the  branch  deal- 
ing with  contracts  for  warlike  stores  and  the  committee  for  the 
production  of  high  explosives.  New  transfers  from  the  War 
Office  were  made;  and  by  the  end  of  1915  the  scope  of  the  Min- 
istry covered  the  supply  of  arms,  ammunition,  explosives,  opti- 
cal munitions  materials,  trench  warfare  supplies,  munitions  con- 
tracts, munitions  finance,  inspection,  invention,  design  and  the 
administration  of  the  Royal  ordnance  factories.  ' 

The  main  headquarters  organization  in  1010  is  showr  in  the 
following  outline :  ^ 

Minister  of  Munitions 

Four  Parliamentary  Secretaries 

Secretariat  and  Labor  Supply  Department 

Director  of  Munitions  Recruiting 

Dirt  -tor  of  Housing  Consiruction 
Munitio!  s  Supply  Department 

Director  General 

3  Deputy  Directors  General 


'  The  liar  Ciihiiicl:  Report  for  the  Year  I'-Hl .  p.  68. 
'  British  Imperial  ialendar,  1916,  p.  409  a-d. 


MUNITIONS   AND   AIRCRAFT  103 

10  Directors 

Chief  Superintendent  Royal  Ordnance  Factories 

Minister  of  Ordnance  Board 

Chief  Inspector,  Woolwich 

Chief  Inspector  of  Small  Arms 
Explosives  Supply  Department 

Director  General 
Deputy  Director  General 
.'5  Directors 

General  Manager  Factories 
Trench  Warfare  Supply  Department 
Director  General 
Deputy  Director  General 
Adviser  on  Trench  Ordnance 
Scientific  Advisory  Committee 
Scientific  Commercial  Committee  (6  members) 
Munitions  Inventions  Department 
Controller 
Secretary 
Panel  of  Advisory  Experts 

The  several  departments  of  the  Ministry  were  scattered  in  a 
number  of  diflferent  buildings,  in  and  near  Whitehall 

During  the  year  1<J1«,  the  Ministry  of  Munitions  was  further 
charged  with  the  storage  of  gun  ammunition,  supply  of  "  tanks  " 
supply  of  tractors  for  heavy  howitzers,  supply  of  railwa-  ma- 
terials for  the  army,  supply  of  mechanical  transport  vehicle's  and 
the  supply  of  chemical  glass  and  laboratory  ware 

By  the  latter  part  of  lOUI.  the  administrative  organization  of 
the  Ministry  had  expanded,  as  folLws : ' 

Minister  of  Munitions 
Parliamentary  Secretaries 
General  Secretaries 
Secretariat 

Assistant  General  Secretary 

Requirements  and  Statistics  Branch 

Establishments  Branch 

Special  Intelligence  Branch 

'  H'hilakers  Almanack.  1917,  i  p.   ZM-2i~. 


104 


BRITISH    WAR    ADMINISTRATION 


Department  of  Munitions  Finance 

Assistant  Financial  Secretary 

Director  of  Munitions  F"inance 

Director  of  Munitions  Accounts 
Controlled  Establishments  Division 

Assistant  General  Secretary 
Department  of  Munitions  Design 

Director  General 

Trench  Warfare  Research  Division 
Department  of  Munitions  Supply 

Director  General 

Director  of  Area  Organization 

Director  of  Contracts 

Director  of  Steel  Production  and  Factory  Construction 
Department  of  Ordnance  Supply 

Director  General 

Controller  of  Gun  Ammunition  Filling 

Royal  Ordnance  Factories,  Woolwich 

Small  Arms  Factory,  Enfield 
Department  of  Shell  Manufacture 

Controller 
American  and  Transport  Department 

Director  General 

Director  of  Railway  Materials 

Director  of  Overseas  Transport 

Director  of  Optical  Munitions 

Director  of  American  Office 

Director  of  Railway  Transport 
Department  of  Mechanical  Transport  Supply 

Director  General 
Department  of  Mechanical  Warfare  Supply 

Director  General 
Department  of  Munitions  Inspection 

Director  General 
Department  of  Munitions  Labor  Supply 

Director  General 
Munitions  Labor  Regulation  Department 

Deputy  Assistant  (ieneral  Secretary 
Department  of  Explosives  Supply 

Director  General 
Department  of  Trench  Warfare  Supply 

Director  (jeneral 
Department  of  Munitions  Invention 

Controller 


MUNITIONS    AND    AIRCRAFT 


lOi 


In  1017,  the  functions  of  the  Ministry  were  still  further  ex- 
tended to  include  the  supply  of  aeroplanes,  agricultural  machinery 
supply,  the  manufacture,  use  and  distribution  of  sulphuric  acid, 
and  (after  June)  the  supply  of  fuel  oils;  and  the  administrative 
organization  of  the  Ministry  was  again  expanded  and  elaborated 
to  care  for  these  additional  activities.  At  the  end  of  1010  a  cen- 
tral clearing  house  for  allocating  machine  tools  was  organized. 
In  February,  1017,  a  special  organization  was  formed  for  scrap 
metals  and  salvage;  and  in  March  a  department  of  nonferrous 
metals  was  formed. 

The  various  departments  in  the  Ministry  were  at  first  formed 
into  three  groups— Supply.  Finance  and  Secretariat— each  under 
a  separate  head.    But  this  arrangement  soon  broke  down,  and  the 
several  departments  became  practically  independent,  the  head  of 
each  having  direct  access  to  the  Minister,  who  was  assisted  by  an 
Advisory  Council  of  seven  heads  of  important  departments.     In 
August,  1017,  a  Munitions  Council  was  established,  consisting  of 
the  -Minister,  two  Parliamentary  Secretaries  and  ten  other  mem- 
bers, each  of  the  latter  Ijeing  assigned  to  a  group  of  depart- 
ments.    The  -elation  of  the    nembers  of  the  council  to  the  de- 
partments '        not  Ixren  altogether  clear  or  consistent.     Appar- 
ently the  heads  of  the   subdepartments  have  more   liberty  of 
reference  to  the  Minister  than  has  been  usual  with  subordinate 
officers  in  a  government  ministry.    The  several  groups  appear  to 
have  been  formed  on  the  basis  of  convenience,  and  sometimes  on 
an  accident  of  personality,  rather  than  relationship  or  a  logical 
scheme.     A  strictly  logical  hierarchy  has  proI)ably  been  impos- 
sible; and  the  smooth  working  of  the  departments  under  the 
council  is  an  indication  of  the  patriotic  spirit  and  tact  oi  the 
officials.     But  the  Munitions  Council  can  not  be  compared  with 
the  Army  Counc-'  or  the  Admiralty   Board,  in  each  of  which 
there  are  more  or  less  clearly  defined  divisions  assigned  to  each 
member.     A  munitions  council  based  on  well  defined  branches 
could  be  smaller  than  the  present  body.  ' 


lOG 


BRITISH    WAR    ADMINISTRATION 


^V;. 


The  general  plan  of  organization  at  the  end  of  1917  was  as 
follows : ' 

Minister  of  Munitions 

Two  Parliamentary  Secretaries 

Representative  in  the  House  of  Lords 

Munitions  Council — Secretary 

Requirements  and  Statistics  Departmeni 

Parliamentary  and  General  Department — Assistant  Sec- 
retary 

Establishment  Department — Assistant  Secretary 

American  Department — Assistant  Secretary 

Special  Intelligence 

Special  Services 

Priority  Department — Controller 
Munitions  Council — Group  F 

Finance  Department — Controller 

Contracts  Department — Controller 

Salvage  and  Stores  Department — Controller 

Munitions  Works  Board — CI       man 

Lands  Department — Director  <  general 
Munitions  Council — Group  D 

Design  Department — Controller 

Inspection  Department — Controller 

Trench  Warfare  Department — Director 

Chemical  Warfare  Department — Controller 

Inventions  Department — Controller 
Munitions  Coun'.il — Group  S 

Iron  and  Steel  Production — Controller 

Factory  Construction — Director 
Munitions  Council — Group  M 

Raw  Materials   (nonferrous)   Department — Controller 

Railway  Materials  Department — Director 

Optical  Munitions,  Glassware  and  Potash  Production 
Department — Conti  oiler 

Overseas  Transport  Department — Director 

Forwarding  Department — Director 

Inland  Transport  Department — Director 

Mineral  Resources  Development  Department — Controller 

Government  Spoiling  Mills — Director 
Munitions  Council — Group  X 

Explosives  Supply  Department — Director  General 
'  ly/titahrr's  Almanack,   1918,   pp.   .'25  ff. 


fiifl" 


MUNITIONS    AND    AIRCRAFT  107 

Mineral  Oil  Department — Director 

Trench  Warfare  Chemical  Supplies— Controller 
Munitions  Council — Group  P 

Gun  Ammunition  Manufacture — Controller 

Gun  Ammunition  Filling — Controller 

Trench  Warfare  Supply — Controller 

Timber  Supplies — Director 

Area  Organization — Director 

Small  Arms  Ammunition — Controller 

Central  Clearing  House — Director 
Munitions  Council — Group  G 

Gun  Manufacture — Controller 

Gun  Forgings — Director 

Trench  Guns  and  Howitzers — Controller 

Small  Arms  and  Machine  Guns — Controller 

Gun  Statistics — Director 
Munitions  Council — Group  E 

Aeronautical  Supplies — Controller 

Mechanical  Machinery — Controller 

Agricultural  Machinery — Director 

Machine  Tools — Controller 

Mechanical  Transport — Director 

Petrol  Engines — Controller 

Electric  Power  Supply — Director 
Munitions  Council — Group  L 

Labor  Regulation  Department 
Labor  Supply  Department 
Munitions  Coancil — Group  A 
Imperial  Munitions  Board,  Canada 

The  headquarters  staff  at  first  numbered  less  than  200.  B>- 
March  .'51,  lOK!,  it  had  increased  to  4,7.Sj;  by  June  ;}0,  to  5. 30.5 
and  by  June  HO,  1!)17,  to  li'.lHO.  This  included  unpaid  officials, 
officials  and  employes  from  other  departments  and  those  paid 
by  the  Ministry.  Nearly  half  were  women.  The  monthly  sal- 
aries for  June,  l!»lti,  amountetl  to  £ii5,:j;i:J,  and  for  June.  l'.)17,  to 
£in.3,8i:..' 

In  July,  1015,  the  total  staff  of  the  Ministry  consisted  of  8,701 
persons.     In  I'.ilV  it  included  nearly  40,000  in  the  United  King- 

'  Solicitors  Journal,  .\ugu5t  4,  1917,  p.  670. 


108 


BRITISH    WAR   ADMINISTRATION 


dom,  with  more  than  8,000  additional  in  the  United  States  of 
America.  In  March,  1916,  women  composed  28  per  cent  of  the 
total  staff;  in  1917  they  formed  Gl  per  cent,  numbering  about 
29,000. ' 

For  localized  administration  the  United  Kingdom  has  been 
divided  into  eleven  areas,  in  each  of  which  has  been  placed  an 
office  of  the  Ministry,  with  a  secretary,  superintending  engineer, 
trench  warfare  supply  engineer,  admiralty  representative,  a  labor 
officer  and  in  some  cases  a  railway  transport  officer.  The  func- 
tion of  the  area  office  is  locally  to  look  after  the  development  of 
the  production  of  munitions,  and  the  administration  of  the  Muni- 
tions of  War  Act,  and  to  report  to  and  advise  the  central  office. 

The  munitions  areas  have  been,  as  a  rule,  divided  into  muni- 
tions districts,  each  having  a  local  munitions  committee  (a  con- 
sultative body)  and  a  board  of  management  which  directs  the 
manufacture  of  munitions  in  national  shell  factories  or  arranges 
for  their  manufacture  by  means  of  a  cooperative  scheme.  In 
some  flistricts  there  have  been  subdistricts,  each  with  its  local 
munitions  committee. 

In  Ireland  no  districts  have  been  established;  but  the  work  of 
placing  contracts  and  of  direction  has  been  carried  out  by  the  two 
area  offices  at  Dublin  and  Belfast. 

In  the  Metropolitan  area  (inducing  Surrey,  Kent  and  southern 
Essex),  the  administration  has  been  divided  into  eleven  districts, 
each  with  a  district  manager  in  charge. 

The  aim  has  been  to  provide  a  large  measure  of  decentraliza- 
tion, with  common  lines  of  policy  and  control  determined  by  the 
central  department  and  its  inspectorate.  ^ 


Additional  Committees " 

In  addition  to  the  internal  organization  of  the  new  department, 
there  i)egan  to  appear  before  long  a  new  series  of  committees,  to 
(leal  with  special  problems  relating  to  the  supply  of  munitions :' 

' 'r,  ■^',',''',"'""  ■  •'''■'''!>''  II' » Mwhs  and  the  Ifar.  p.  14. 
-  rhc  Political  Quarterly.  \o.  7  (1916),  p.  158. 
'Liberal  Year  Hook,  15l7 


MUNITIONS   AND   AIRCRAFT 


109 


A  Munitions  Advisory  Committee  was  provided  to  consider 
general  problems. 

A  Controlled  Establishments  Profits  Board  of  Referees  heard 
appeals  by  owners  of  controlled  establishments,  not  satisfied 
u^th  the  standard  rate  of  dividend  fixed  by  the  Minister  of 
Munitions. 

The  Central  Control  Board  for  the  Liquor  Traffic,  established 
in  June.  1!»1.-,,  was  appointed  by  the  Minister  of  Munitions 

As  early  as  July.  191.5.  a  Munitions  Parliamentarv  Committee 
was  formed,  composed  of  00  members  c-f  the  House  of  Commons 
to  encourage  munitions  workers  to  maintain  and  increase  produc- 
tion.    Meetings  were  held  at  various  works  addressed  bv  mem- 
bers of  Parliament,  and  pamphlets  were  prepared  and  issued 

A  Munitions  Labor  Supply  Committee  was  organized  in  Sep- 
tember, with  17  members,  including  representatives  from  the  \a- 
tional  Labor  Advisory  Committee  and  the  Ministrv  of  Munitions 
and  other  members,  to  advise  as  to  the  transfer  of  skilled  labor 
and  the  use  of  semi-skilled  and  unskilled  labor.  This  committee 
reported  to  the  Ministry  of  Munitions  and  to  the  Admiralty 

A  Health  of  Munitions  Workers  Committee  was  appointed 
about  the  same  time,  with  the  concurrence  of  the  Home  Secre- 
tary. "  to  consider  and  advise  on  questions  of  industrial  fatigue 
hours  of  labor,  and  other  matters  affecting  the  personal  health 
and  physical  efficiency  of  workers  in  munitions  factories  and 
workshops.  •  This  committee  was  composed  of  Sir  George  New- 
man. ALD..  chairman,  three  representatives  from  the  Factorv 
Department  of  the  Home  Office,  three  physicians,  one  member  of 
larhament  and  the  Secretary  of  the  Medical  Research  Com- 
mittee. 

As  a  result  of  its  investigations,  a  series  of  memoranda  was 
prepared  and  issued  on:  Sunday  labor,  welfare  supervsi„n  in- 
dustrial canteens,  employment  of  women,  hours  of  work,  canteen 
construction  and  equipment,  industrial  fatigue  and  its  causes 
special  industrial  diseases,  ventilation  and  lighting  of  munitions 
factories  and  workshops,  and  sickness  and  injurv.  These  showed 
the  need  for  preserving  and  the  danger  of  abaiu  oning  regula- 


110 


BRITISH    WAR    ADMINISTRATION 


tions  and  restrictions  for  the  protection  of  labor,  in  the  interest 
of  the  greatest  efficiency. 

A  Building  Lalwr  Interdepartmental  Committee,  of  fifteen 
members,  was  created  in  October,  l»ir>,  to  control  and  regulate 
the  rates  of  wages  paid  to  building  labor  on  the  construction  of 
buildings  for  the  production  of  munitions  of  war. 

A  Committee  on  Women  in  Munitions  Work  was  appointed,  in 
November,  IDKi  (consisting  of  nine  members,  including  si.x 
women),  to  consider  the  question  of  the  supply  and  organization 
of  women's  service  (whether  voluntary  or  paid)  in  canteens, 
hostels,  clubs,  and  other  agencies  connected  with  the  welfare  of 
munitions  workers,  and  to  advise  what  steps  should  be  taken  in 
connection  therewith. 

A  Munitions  Ordnance  Committee  was  established  in  April, 
1010.  composed  of  thirteen  army  and  navy  oflficers. 

In  Xoveniber.  lOlti.  a  Metals  for  Munitions  Committee,  of 
three  members,  was  appointed  to  advise  on  steps  to  secure  the 
most  economical  use  of  metals  required  for  munitions  of  war, 

In  December,  a  special  committee  was  appointed  to  advise  the 
Ministry  of  Munitions  on  the  purcha.se  and  distribution  of  cop- 
per; and  another  committee  to  advise  and  consult  with  the  Min- 
istry of  Munitions  as  to  the  needs  of  the  users  of  bleaching  pow- 
der. 

In  January.  1917.  an  .Agricultural  Machinery  Advisory  Com- 
mittee was  formed,  with  six  members,  representatives  of  the 
Ministry  of  Munitions,  the  Board  of  Agriculture  and  the  Food 
Controller,  to  advise  the  agricultural  machinery  branch  of  the 
Ministry  of  Munitions. 

Other  committees  and  agencies  established  in  connection  with 
the  work  of  the  Ministry  of  Munitions  include  the  following: ' 

-Anti-aircraft  Equipment  Committee 

E.xplosions  at  Government  Controlled  Factories  Committee 

High  E.xplosives  Committee 

Munitions  Boards  of  Management  Executive  Committee 

Munitions  Hours  of  Labor  Committee 

'  rar'itamcntary  P.ipers.  191",  Cd    8741. 


MUNITIONS   AND   AIRCRAFT 

Munitions  Interallied  Bureau 

Munitions  Inventions  Panel 

Munitions  Labor  Priority  Committee 

Munitions  Priority  Committee 

Munitions  Works  Board 

Central  Clearing  House  for  Machinery 

Oils  and  Fats  Branch 

Trench  Warfare  Chemical  Advisory  Committee 

Trench  Warfare  Commercial  Advisory  Committee 

Trench  Warfare  Mines  Committee 

Trench  Warfare  Advisory  Panel 

Trench  Warfare  Supply  Department,  Chemical  Section 


111 


Financial  Arrangements 

Some  time  was  required  for  the  development  of  the  system  of 
finance  administration  for  the  new  Ministry  of  Munitions.  Up 
to  July  1,  1915,  expenditure  was  charged  to  one  of  the  army 
votes.  The  accounting  officer  for  the  War  Office  continued  for 
a  time  to  he  responsible  for  expenditure-  transferred  from  the 
War  Office;  but  later  (from  October  1)  a  separate  accounting 
officer  was  appointed  for  the  new  Ministry. 

In  November,  101.j,  a  committee  of  three  members  was  ap- 
pointed to  review  the  expenditure  of  the  Ministry  of  Munitions, 
and  to  secure  economy.  Expenditures  were  made  in  conformity 
with  general  rules  governing  War  Office  expenditure,  set  forth 
in  Treasury  Minutes  early  in  the  war ;  but  the  relations  between 
the  new  Ministry  and  the  Treasury  were  not  clearly  defined  un- 
til a  Treasury  Minute  of  January  1.  IDIC.  A  later  Treasury 
Minute,  of  October  2{>.  liHC,  provided  for  an  interdepartmental 
emergency  committee  (including  representatives  of  the  Treasury 
and  the  Ministry  of  Munitions)  to  deal  with  proposals  for  ex- 
penditures in  the  same  manner  as  the  standing  committee  ap- 
pointed at  the  outbreak  of  the  war  for  emergency  naval  expendi- 
.   re. 

Under  the  rules  laid  down,  the  Treasury  named  the  heads  of  ac- 
counts and  a-ked  to  be  informed  of  contracts.  Lump  sums  were 
approved  for  buildings  and  works:  but  Treasury  sanction  was 


112 


BRITISH    WAR    ADMINISTRATION 


necessary  for  fixing  rates  of  wages  and  for  purchasing  land  or 
leasing  for  more  than  seven  years.  An  amendment  to  the  De- 
fense of  the  Realm  Regulations,  February  15,  1!)1(5.  secured  to 
the  Ministry  control  over  prices,  in  common  with  the  Admiralty 
and  the  War  Office,  by  authorizing  the  requisition  of  the  out- 
put of  any  factory  at  a  fair  cost,  as  shown  by  the  contractors' 
accounts.  In  the  early  months  of  the  Ministry  there  was  lack  of 
coordination  and  wide  diff^erences  between  the  different  branches 
of  the  Ministry  in  fi.xing  prices  and  making  contracts. 

After  some  time  a  Munitions  Finance  Committee  and  a  Muni- 
tions Financial  Advisory  Committee  were  established.  Criti- 
cism was  made  of  the  financial  organization  because  the  finance 
department  of  this  Ministry  was  coordinate  with  the  several  sup- 
ply departments ;  while  in  the  Admiralty  and  the  War  Office  one 
of  the  Parliamentary  Secretaries  was  specially  assigned  to  finance 
matters.  ' 

These  criticisms  of  the  financial  arrangements  in  the  Ministry 
of  Munitions  were  repeated  by  the  Select  Committee  on  National 
Expenditure,  which  recommended  that  one  Parliamentary  Sec- 
retary in  this  Ministry  be  charged  with  financial  matters;''  and 
this  has  since  been  provided. 

Further  criticism  of  the  continuation  of  lax  financial  methods 
was  made  in  the  report  of  the  Controller  ar  '  Auditor  General 
on  the  expenditure  of  the  Ministry  of  Munitions  during  the  year 
1916-17. 


Vast  quantities  of  materials  and  components  of  immense  value  have  been 
issued  "  free  "  to  various  contractors  ...  no  adequate  record  of  issues  from 
the  Ministry's  stocks  .  .  .  was  kept  .  .  .  nor  had  any  effective  steps  been 
taken  to  the  end  of  1916-17  to  secure  that  ...  an  equivalent  .  .  .  had  been 
returned.  .  .  .  There  had  also  been  failure  to  keep  an  accurate  and  complete 
record  of  repayable  cash  advances  made  to  the  firm. 

The  result  was  that  firms  were  paid  twice,  advances  were 
not   recovered,   interest   was  not   claimed.     One   firm   received 

'  Ministry  of  Munitions  .Appropriation  .Account,  in  Partiamcniary  I'apcrs, 
1917.  .No.  40,  and  Report  of  the  Controller  General;  Liberal  Year  Book  1917, 
p.  155. 

"  First  Report,  September,  1917. 


MUNITIONS    AND   AIRCRAFT 


113 


as  much  as  £0.000,000  in  loans,  and  took  advantage  of  the 
laxness  to  cease  making  its  monthly  repayments:  this  \vas  ap- 
parently never  noticed  in  the  Ministry,  and  the  loan  had  not  been 
repaid  at  the  date  of  the  controller's  report.  ' 


The  Munitions  Industr\' 

Something  of  the  scope  and  success  of  the  Ministry  of  Muni- 
tions may  be  indicated  by  presenting  some  statistical  data  as  to 
the  development  of  the  munitions  industry  in  Great  Britain  since 
the  organization  of  the  new  department. 

Early  in  August.  1915.  there  were  ;545  controlled  establish- 
ments operatmg  under  the  supervision  of  the  Ministry.  By 
October  of  that  year  there  were  1.000  such  controlled  establish- 
ments: 20  national  factories  had  been  established,  and  11  more 
were  under  way:  and  IS  cooperative  areas  had  been  organized 
Nearly  l.OOO.OOo  people  were  employed  in  the  government  and 
controlled  establishments  on  munitions  productions.  - 

By  the  latter  part  of  the  summer  of  1!)1G.  there  were  4.300 
controlled  establishments  employing  more  than  2.000,000  workers 
(some  400,000  women)  engaged  in  constructing  gun  carriages, 
ammunition  wagons,  and  other  supplies.  There  were  9r,  national 
factories  working  for  the  land  services— 20  manufacturing  ex- 
plosives and  materials.  18  filling  gun  and  trench  mortar  ammuni- 
tion, i;  making  cartridges  and  cartridge  cases,  32  shell  factories 
operated  by  local  boards  of  management,  and  12  heavy  projec- 
tile factories.  '  Later  in  I'JKi.  there  were  53  shell  factories.  3s 
local  boards  of  management,  and  others  managed  for  the  Min- 
istry by  experienced  munitions  firms.  *  The  Woolwich  arsenal 
which  in^August.  1914,  employed  lO.SOO  persons,  by  June.  1917. 
had  73.571.  about  a  third  of  whom  were  women.  = 

By  the  end  of  1917,  there  were  143  national  factories  and  20.- 

20.'l918)"""''"""'^  '^''^'"-  '^"^'  "•^■-  ^■''  '''"  ^'''--  Statesman,  xi,  44  (April 
•  Ibi'd.^tch.  'm.%hTv    '^"'^''"1"'^'''  "f  ""•  "'<"■•  V,  ch.  93,  p.  412. 
!  I'ltcryiew  with  C.  .Addison  to  the  Associated  Press 
L.  Addison:  British  Workshops  and  the  liar,  p.  17. 


114 


BRITISH    WAR    ADMINISTRATION 


li  I 


000  private  controlled  establishments,  with  a  total  of  more  than 
2,000,000  work  |)eople.  of  whom  044,000  were  women.  Includ- 
ing those  employed  on  admiralty  work,  more  than  2,700.000  were 
engaged  in  munitions  works,  of  whom  over  TOO.OOo  were 
women.  ' 

The  work  of  the  Ministry  has  included  much  more  than  the 
provision  of  arms  and  ammunition.  Every  machine  tool  maker 
in  the  United  Kingdom  has  been  brought  under  its  control.  The 
supply  of  motor  trp  .ort  was  transferred  to  the  MinisN-y  of 
•Munitions  in  lOUi,  the  supply  of  agricultural  implements  later  in 
the  same  year,  and  the  supply  of  aeroplanes  and  seaplanes  for 
the  army  and  navy  early  in  l'.»17.  ^ 

In  addition  to  the  building  construction  in  connection  witli  the 
e.xtension  of  former  works  a..d  the  erection  of  new  plants,  the 
Ministry  has  also  taken  an  active  part  in  securing  housing  ac- 
commmlations  for  workers  in  the  munitions  factories.  F.xi.st- 
ing  accommodations  have  been  taken  over  and  adapted  for  muni- 
tions workers :  temporary  housing  facilities  have  been  constructed 
by  the  Ministry  itself;  and  the  government  has  made  contribu- 
tions to  local  authorities  and  others  to  provide  permanent  hous- 
ing. '  Whole  villages  have  been  built,  accommodations  for 
OO.OOO  people  being  provided  in  one  year.  * 

The  supply  r  i!  -  ributior!  ■;;"  labor  has  l>een  an  important 
part  of  the  work  of  the  Ministry.  Many  thousands  of  skilled 
workmen  have  been  withdrawn  from  the  army  for  munitions 
work.  By  cooperation  with  the  trades  unions,  skilled  workmen 
have  been  transferred  to  where  they  could  be  of  most  service, 
and  '^illed  labor  has  been  "  diluted  "  with  unskilled,  and  many 
of  tl..  latter  have  been  trained  for  special  work.  The  employ- 
ment of  women  has  also  been  developed  to  a  large  e.xtent,  so  that 
in  some  lines  from  CO  to  SO  per  cent  of  the  workers  have  been 
Women.  ^ 


Tlii-  ll'tir  Cabiiu-t:  Report  for  /.''i7,  pp.  69-70. 
'C.  .Addison:  British  ll'orkshots  jnd  the  ll'ar,  pn  20  21 
'■  ibiJ..  pp    41-4,?.  "         ■ 

*  ir.tervitw  with  C.  .Addison  to  the  .Associated  Press. 

'  Ibid. 


i 


MUNITIONS   AND   AIRCRAFT  uj 

Regulation  of  industrial  conditions  through  the  munitions 
tr.bunals  and  settlement  of  labor  disputes  have  also  required  a 
good  deal  o  attention.  .Ru'es  for  constituting  and  regulating 
mun.fons  tribunals  were  issued  in  July.  11.15;  and  revise.l  from 
time  to  t.me.  '     Up  to  July  1.  lOl.J.  these  tribunals  had  acted  on 

.'fll  frT"'°"-"  '•'•''''  ^PP''^^*i°"^  f-'  'saving  certificates, 
and  .100  claims  tor  compensation.  ^  Fortv-five  labor  advisory- 
boards  have  assisted  the  disputes  section  of  tne  Ministrv:  and  the 
amount  ot  t>me  lost  by  suspensions  of  work  was  reduced  in  the 
first  part  of  191,;  to  less  than  a  fourth  of  that  in  the  same  perio.l 
of  1.1 ,:  and  a  year  later  this  had  been  further  reduced  to  about 
a  third  of  that  m  11)10.' 

Much  has  also  been  done  in  the  regulation  of  wages,  hours  of 
labor  and  conditions  of  employment,  greatly  extending  the  field 
ot  government  control  of  industry. 

General  Estimate 

When  Mr.  Lloyd  George  became  Secretary  of  State  for  War 

m  June.  1910,  his  place  as  Minister  of  Munitions  was  taken  bJ 

Edwm  S.  Montagu,  who  had  been  Financial  Secretary  to  the 

Treasury  and  Chancellor  of  the  Duchy  of  Lancaster  '  At  the 

Cabmet  and  mmisterial  reorganization  in  Deceml,er.  1-no    Dr 

Christopher  Addison,  who  had  been  Parliamentary  Secreta^-  to 

.he  Board  of  Education,  and  later  Parliamentary  Secretary   to 

the  M'n>=t'-y  of  Munitions,  was  promoted  to  be  Minister  '    In 

July,  l.,l<.  Dr.  Addison  became  Minister  of  Reconstruction  and 

Umston  Churchill,  who  had  been  First  Lord  of  the  Admiralty 

betore  May.  1.15.  was  appointed  as  Minister  of  Munitions.     ' 

The  Ministers  of  Munitions  have  thus  all  l.en  men  active  in 
political  and  parliamentary  life;  although  the  work  of  the  Min- 
istry would  seem  to  be  adapted  to  men  of  large  business  an.l 
administrative  experience. 

From  the  point  of  view  of  material  results  the  new  Ministrv 

'  f!f,'-'''»"'-"'«7.  r'afers.  1916,  pp.  321.  348.  3.S0  351 
/'.^';r'l914,1:<,'8;43;'j9r6"c!'r8"3%  '■""''■"-    -^-"unals,    Parl.a...n,a-y 
C.  .Addison:  British  Workshops  and  the  War.  p.  39. 


AKf,;. 


^^l^^T^ 


116 


BRITISH    WAR    ADMINISTRATION 


appears  to  have  justified  itself.  When  it  was  established,  the 
task  of  organizing  and  developing  the  munitions  industry  was  of 
such  urgent  importance  that  it  required  .one  of  the  strongest  men 
in  the  government,  and  this  made  it  necessary  to  place  this  de- 
partment in  the  front  rank.  The  magnitude  of  the  business  under 
its  control  continues  to  make  the  department  one  of  the  most  im- 
portant during  the  progress  of  the  war. 

But,  as  is  clearly  recognized  in  the  act  creating  the  Ministry, 
as  a  temporary  agciicy  to  expire  shortly  after  the  termination  of 
the  war,  a  separate  Ministry  for  the  supply  of  munitions  and  war 
material  does  not  seem  to  be  advisable  as  a  permanent  feature  of 
the  administrative  organization  of  t'.ie  government.  A  similar 
departm.ent  has  been  established  in  France :  but  no  such  action 
seems  to  have  been  considered  necessary  in  Germany,  although  a 
similar  process  of  increasing  the  government  munitions  works 
and  controlling  private  works  has  been  carried  out  without  creat- 
ing a  new  main  departm(  it  of  government. 

.At  the  same  time,  it  is  not  improbable  that  some  features  of 
the  government  control  of  industry  developed  in  connection  with 
the  Ministry  of  Munitions  will  be  continued  in  force;  and,  even 
with  a  large  measure  of  disarmament  after  the  war,  there  are 
likely  to  l>e  measures  provided  for  the  more  rapid  organization 
and  mobilization  of  the  industrial  resources  of  the  country  for 
military  purposes,  in  the  event  of  another  war.  Moreover  the 
work  of  the  British  Ministry  of  Munitii^ns  suggests  the  ques- 
tion whether  there  may  not  be  permanent  advantages  in  a  more 
unified  control  o\er  the  work  of  furnishing  war  materials  for  all 
branches  of  the  combatant  forces — army,  navv  and  air  service. 
To  secure  this  would  rccjuire  closer  cooperation  between  the  Ad- 
miralty and  the  War  Office,  and  would  tend  towards  the  develop- 
ment of  a  comprehensive  department  of  military  and  naval  af- 
fairs. 


TiiK  .XiR  Service 

.At  the  beo;inning  of  the  war,  the  army  and  the  navy  had  each 
a  service  of  aircraft — the  Ro\al  Flying  Corps  and  the   Koyal 


MUMTIONS    AND    AIRCRAFT 


n: 


I 


^aval  Air  Service-aii.l  each  had  a  separate  administrative  or- 
ganization for  the  supply  of  airplanes  and  seaplanes.  There  was 
also  a  Joint  Air  Committee,  under  .le  Committee  on  Imperial  De- 
fense, composed  of  members  from  the  War  Office  and  the  Ad- 
miralty, to  secure  cooperation. 

With  the  development  of  aerial  attacks  on  Great  Britain  the 
need  for  a  more  dellnite  division  of  labor  and  closer  cooperati.jn 
between  the  army  and  navy  air  services  became  more  pressing 
By  the  middle  of  February,  lOlO.  a  plan  of  division  had  been 
agree<l  to.  under  which  the  navy  was  responsible  for  defensive 
measures  until  hostile  craft  reached  the  British  coast,  and  there- 
after the  army  was  responsible,  under  the  control  of  Field  Mar- 
shal Sir  John  French,  commander  in  chief  for  home  defense.  ' 
A  new  Air  Conmiittee  was  appointed,  with  Lord  Derby  as  chair- 
man ;  but  like  the  former  committee  it  had  no  power  of  action. 

More  satisfactory  results  were  secure.l  with  an  increased  supply 
of  anti-aircraft  guns,  more  practice  in  night  flying  and  improved 
meth.Kis  of  attack.  But  continue.l  criticism  led,  in  April  I'MC, 
to  the  appointment  of  a  committee  of  seven  members  t<,  inquire' 
into  and  report  on  the  administration  and  command  of  the  Royal 
Mying  Corps.  X„  investigation  was  made  of  the  naval  air  serv- 
ice. 1  he  committee,  after  e.xamining  more  than  fifty  witnesses 
reported  (August  :!  and  .Vovember  17)  that  the  charges  of  crim- 
inal negligence  were  without  foundation:  and  that  the  Fhin- 
Corps  had  made  but  few  mistakes  an<l  those  not  of  vital  imnor- 
tance.  ' 

Meanwhile  interdepartmental  and  interservice  jealousy  and 
the  lack  .,t  real  power,  led  to  the  resignation  from  the  \ir  Com- 
mittee ot  Lord  Derby,  the  chairman,  and  Lord  Montagu  an<l  the 
practical  collap.se  of  the  committee. 

In  May,  ItUO.  an  Air  Board  was  t,,nne,l,  with  Lonl  Curzon 
as  chairman,  to  succeed  the  .\ir  Committee,  w,tb  larger  powers 
over  questions  ot  policy,  but  without  executive  functions  This 
board  IS  saul  to  have  done  good  work  within  it>  limited  powers- 
but  to  have  suffered  from  the  same  .lefects  as  the  Air  Committee.' 

'  The  Times  H,st,.,x  and  l-ncyclof^.-dia  of  //,,■  (I.,;-,  x,  cli.  l(,.i,  ,,   345. 


lis 


BRITISH    WAR    ADMINISTRATION 


The  retusal  of  the  Admiralty  to  cooperate  in  any  plan  which 
would  in  any  way  deprive  the  Royal  Navv  of  its  independence- 
led  to  nicessant  controversies.     There  was  no  proper  coordin 
tion  wnh  the  Ministry  of  Munitions,  which  was  ultimately  re- 
sponsible for  the  materials  and  labor  required.  ' 

Under  the  Xcw  Ministries  Act.  of  Decemlier.  lOlo.  =  the  Air 
Board  was  reorganized  on  a  statutorv  basis,  with  the  president 
ol  the  board  (Lord  Cowdray)  ranking  as  a  Minister.  The  act 
provided  that  there  should  be  such  a  board  "  for  the  purpose  of 
organizing  and  maintaining  th.  supplv  of  aircraft  in  the  national 
interest  m  connection  with  the  present  war."  The  number  of 
members  and  the  precise  powers  of  the  board  were  to  be  deter- 
mined by  Order  in  Council.    In  the  words  of  the  act : 

Ihc  Air  Board  shall  in  .elation  to  aircraft  have  such  powers  and  duties 
of  any  govcnment  department  or  anthority,  whether  conferred  by  statute  or 
otherwise.  ..s  His  Majesty  may  by  Order  in  Council  transfer  to  the  board  or 
authon.^e  the  board  to  exercise  or  perform  concurrently  with  or  in  consul- 
tation wrth  the  government  department  or  authority  concerned. 

Provision  was  also  made  for  the  cessation  of  the  board  after  the 
war. 

\'iscount  fowdray  was  appointed  as  Air  Minister;  and  served 
in  this  capacity  until  the  summer  of  11*17. 

!n  January.  1!)]7,  the  supply  of  aircraft  was  transferred  to  the 
Ministry  of  Munitions.  In  Februarv.  the  officials  of  the  Ministry 
<n  Munitions,  the  .\dmiralty  and  the  War  Office  dealing  uith 
aeronaut.cs  were  transferred  to  the  Air  Board  offices.  In  April. 
a  Civil  .\erial  Transport  Committee  was  formed,  with  Lord 
Xorthdiffc  as  chairman,  to  consider  the  development  of  aviation 
alter  the  war.  An  Aeronautics  Advisory  C-jmmittee  nas  also 
formed. 

A  proposal  by  Lord  Cow.lray,  in  Jnlv,  11.17.  for  a  more  com- 
prehensive Air  Ministry  was  api)roved  by  the  War  Cabinet,  and 
relerred  to  an  Air  Organization  Committee,  con-.posed  of  Gen- 
eral .'-^inuts  and  representatives  of  the  .\dmiraltv.  War  Office 
Treasury,  an.l  the  Air  Hoard.    An  .\ir  Forces  Bill  was  intro<luced 

'  Thr  Twics  //.(/,.rv  „„d  li,uy.i.>i'edui  nl  the  ll\,r.  n.  3A7. 
6  and  7  (h-..,  \  ,  ch.  68.  ■  i  ■ 


■-■•y:t".i^--'A};t?.'.'=l--    -^ 


MUNITIONS    AND    AIRCRAFT 


11!J 


jn  Par  .anient  and  passed  in  X.,vember.  providing  for  an  -Vir 
Conned  u  ,th  a  new  Secretary  of  State  as  president.  Lord  i^.tlier- 
mere.  who  had  succeeded  Lonl  Cnvdray,  ^^as  appointed  to  the 
new  position.  '  1 1  t 

It  should  be  noted,  however,  that  the  .\ir  .Ministrv  did  not 
have  compete  jurisdiction  over  the  entire  air  service.  '  The  task 
of  home  defense  again>t  air  raids  remained  under  the  armv 
while  airships  continued  under  the  cnntrol  of  the  navv 

The  e  ;tal)]ishment  of  the  Air  Board  as  a  .listinct  ministrv  .eems 
to  have  been  clearl>   less  defensible  as  an  administrative  meas- 
ure than  the  Ministry  of  Munitions,  and  to  have  !,een  mainlv  due 
to  political  .actors.     The  supply  of  airship>  and  equipment  nat- 
urally cane  within  the  .scope  of  the  .Ministrv  of  Munitions  ■  and  a 
new  administrative  department  for  this  purpose  would  have  l^en 
d.rectly  „i  conriict  with  the  general  movement  towards  greater 
concentrat.on  of  responsibility  for  the  supplv  of  war  materials 
At  the  same  time  aerial  open  tions  are  and  must  be  for  the  most 
i>art  conducted   in   close   c<3operation   with   operations   on   land 
or  sea.  .t  not  with  both:  and  the  field  for  independent  aerial  ac- 
tion ,s  limited.     Under  these  conditions  a  distinct  Air  Ministrv 
"Klependent  of  both  army  and  navy,  increases  the  dangers  of 
interdepartmental  rivalries  and  conflicts. 

On  the  other  hand,  there  would  .seem  to  be  possible  advantages 
It  the  army  and  navy  air  services  could  be  united  into  a  sin<dc 
service,  aclmg  in  close  harmony  with  both  the  land  and  Tea 
forces.  This  could  be  most  effectively  accomplished  if  the  armv 
and  navy  could  both  be  brought  together  under  a  comprehei  ive 
-n.stry  ot  war,  in  which  the  air  service  should  be  one  ,f  the 
mam  divisions, 

'  The  n-ar  Labinci:  Report  jo,   the   )\'ar  J!»n,  p,,,  S(,-6J. 


w^ 


CHAPTER  VII 

Defense  of  the  Realm 

Perhaps  of  even  m.^re  significance  than  the  measures  for  the 
.ievelopment  of  the  combatant  forces  has  In^en  the  far-reaching 
expansion  ot  governmental  authoritv  in  Great  Britain  for  the 
manuenance  of  internal  order,  the  suppression  an<l  prevention 
of  acts  at  home  which  might  interfere  with  the  successful  con- 
duct ot  the  war,  and  the  regulation  of  business.    Under  the  com- 
mon law  and  statutes  in  force  before  the  outbreak  of  war.  a  series 
ot  detensive  measures  was  authorized  and  taken.    But  these  were 
pn.mptly  followed  by  additional  legislation  confer.ing  more  and 
niore  e.xtensue  powers  on  the  executive  authorities;  and  these 
have  been  steadily  amended  and  enlarged.  Under  these  emergencv 
acts  there  have  been  issued  long  series  of  regulations  bv  Order's 
in  Councd.  and  orders  by  government  .lepartments  and  officials 
estabbshmg  ai,   n.tensive   system  of    police    control,    affecting 
private  property  and  personal  libertv.     To  enforce  these    new 
and  su,nmary  methods  of  procedure  have  i,een  .levise.l    which 
l.m.t  or  take  away  many  of  the  former  legal  saieguards  for  the 
p.ottction  ot  individual  rights. 


Preliminary  Me.asures 

Mention  may  first  in.  made  of   some  preliminarv  measures 

taken,  under  th.  prewar  legislation,  before  the  f..rma]',leclaration 

of  war.     On  .August  1.  1-114.  notice  was  given  by  the  Postmaster 

.eneral  in  pursuance  of  regulations  of   I'los,  made  under  the 

Wireless  Telegraphy  Act,   1!.()4.  that  an  emergencv  had  arisen 

which  made  it  expedient  for  the  government  to  control  wireless 

teegraphy;  and  regulations  were  issue.l  bv  the  .A.hniraltv  pro- 

I'llmmg  the  use  of  wireless  telegraphy  by  merchant  shi,,s  within 

130 


^M\\ Ill   llll"iafeAt£ 


'^^^m^^ii^Mi^s^i:^ 


DEFENSE    OF    THE    REALM 


121 


the  harbors  or  territorial  waters  of  the  United  Kingdom  and 
the  Channel  Islands.  ' 

On  August  2,  an  order  of  the  Home  Secretary,  under  the 
Aerial  Navigation  Acts,  prohibited  the  navigation  of  aircraft  over 
the  United  Kingdom.  =  On  the  same  day,  a  Royal  Proclama- 
tion postponed  for  one  month  the  payment  of  certain  bills  of  e.<- 
change;^  and  on  the  following  day  another  Royal  Proclama- 
ti'-n,  under  the  Bank  Holida-  Act.  appointed  August  4,  r>  and  G 
as  Bank  Holidays.  *  Ano...er  Royal  Troclnmation  of  August  :], 
under  the  Customs  and  Inland  Revenue  Act,  prohibited  the  ex- 
portation of  a  specified  list  of  warlike  stores. ' 


Royal  Proclamation  of  August  4,  1914 

Much  more  sweeping  was  the  Royal  Proclamation  of  August 
4  (the  date  of  the  declaration  of  war  against  Germanv),  author- 
izing the  Admiralty,  the  Army  Council  or  other  officers  to  issue 
instructions  and  regulations  for  the  public  safety  and  the  defense 
of  the  realm. «  This  proclamation  is  of  special  significance  be- 
'rause,  issued  in  the  name  of  the  King,  as  an  act  of  the  Roval  pre- 
rogative, without  the  formal  approval  of  the  Privv  Council  or 
the  authority  of  any  Act  of  Parliament,  it  asserted'the  preroga- 
tive power  to  take  all  measures  necessary  for  securing  the  public 
safety  and  defense  of  the  realm ;  nor  were  anv  limitations  laid 
down  as  to  the  instructions  or  regulations  which  might  be  issued 
under  the  proclamation. 

Very  little,  if  anything,  of  importance  appears  to  have  bcvrn 
done  under  this  proclamation.  Almost  immediatelv  Acts  of  Par- 
liament were  passed,  in  brief  and  comprehensive  terms— though 
not  so  sweeping  as  in  the  proclamation  of  August  4;  and  other 
proclamations,  regulations  and  orders  soon  followed,  based  on 
the  authority  of  these  statutes.    The  decision  of  the  King's  Bench 

I  'yaiiual  of  Emergency  Legislation,  1914,  p.  402. 

Ibid.,  p.  47. 
■  Ibid.,  p.  238. 

•  Ibid.,  p.  99. 

•  fbid..  p.  160. 

•  Ibid.,  p.  145. 


lOO 


BRITISH     WAR    ADMINISTRATION- 


Mon  and  ,  c  H„h  CVurt  ,.f  Appeal  in  the  Zadi^  case,  in 
1^'   ...  confirnie.    l,v  the  House  of  Lords  in   IIMT.  upholding  .he 
De  en.e  oi  the  Reahn  Regulations,  as  authorised  l,y\he  Del-ns 
o    tl  c  Ivcalm  Acts  of  .'arliament.  indicates  clearlv  that  no  such 

executive  under  the  Royal  prerogative.  ' 


Acts  of  Parliament 
AI.  n>    kestnction   Act  became  law.  authorizing  the   King    hv 

nlu  kat.on  or  residence  of  aliens  in  the  Uniteu  Kingdom,  for 

h      regulation    of    ahens.    and    for    the    regulation    of    their 

"'ovements.  and  ,or  other  measures  of  police  control.     Provision 

uas  made  tor  the  appointment  of  officers  to  enforce  such  regu- 

latn.ns  an<l  for  the  imposition  of  penalties  ^ 

On  August  r.  11)14.  an  act  on  British  nationalitv  and  the  sta- 
tus oi  aliens  In^came  law.  which  consolidate*!  the  former  law  with 
some  amendments.  an<l  repealed  the  Xaturalization  Act  of  1870 
and  much  earlier  legislation  from  the  time  of  F.dward  III  This 
nu-asure  ,,repara:  before  the  war.  and  going  into  operation  Jan- 
uarv  !.  1,-1.,  affected  the  steps  which  were  taken  to  deal  with 
persons  oi  alien  origin;  and  was  criticized  for  excluding  from 
nn<h  citizenship  the  children  of  I^ritish  subjects  born  outside 
ut  Hr,ti.h  Hinsciction.  and  for  including  the  children  of  aliens 
'")rn  in  British  dominions.  ' 

.^hlch  wider  power,  were  conferred  bv  the  Defense  of  the 
Ivea  in  Act  .n  August  s.  This  was  supplemented  bv  another  act 
yt  August  I's;  and  was  further  amende.l  an,l  revised  bv  the  De- 
tcnso  n,  ,l,e  Realm  Consolidation  Act  of  November  .'7  '  Further 
>"".-fK-atiui,s  were  made  by  later  acts  in  is.ir,  and  1010.     This 

^or  !u,Mi  i'fJJl^'r^"-     ''f-  "'•■^■"^  '"  "ro„  PuMu-  c,  dc  la  Scicucc  l'clUu,u.. 
/Car,  ^,„.  '     '^-    ""    ^'"•'■'   '^'"-'ry  and  lincychped.a  of  the 


DEFENSE    OF    THE    REALM 


12:3 


legislation  authorized  regulations  by  Order  in  Council,  for  secur- 
ing the  public  safety  and  defense  of  the  realm:  and  for  the  trial 
and  punishment  of  ofiFendcrs  against  such  regulations,  and  in 
particular  against  provisions  to  prevent  conununications  with  the 
enemy;  to  secure  the  safety  of  troops  and  ships,  the  means  oi 
communication  ^nd  railways,  ports  and  harbors;  to  prevent  the 
spread  of  false  ar:l  dangerous  rumors;  to  secure  the  navigation 
of  vessels  in  accordance  with  Admiralty  directions;  or  to  prevent 
assistance  being  given  to  the  enemy  or  danger  to  the  successful 
prosecution  of  the  war.  ' 

The  original  Defense  <if  the  Realm  Act  authorized  the  trial  of 
offenders  against  the  regulations  by  court-martial;  or  in  the  case 
of  mmor  ofifenses,  by  courts  of  summary  jurisdiction.  The  con- 
solidation act  of  Xovember  was  even  more  drastic,  authorizing 
the  death  penalty  in  the  case  of  offenses  '•  committed  with  the  in- 
tention of  assisting  the  enemy."  Opposition  was  raised  in  the 
House  of  Lords  (by  e.K-Chancellor  Lord  Hal,sl)ury,  Lord  I'ar- 
nioor  and  \'i.sconnt  Drycc)  to  thus  authorizing,  for  the  first  time 
in  more  than  two  cei.uiries,  a  civilian  to  be  sentenced  to  death 
without  trial  by  jury;  but  the  revision  wa.s  enacted  as  proposed. 

A  work  on  this  emergency  legislation,  which  ajjpeared  early  in 
H'l."..  called  attention  to  the  far-reaching  authority  conferred  on 
the  executive.  -'  Other  doulits  ajipear  to  have  arisen  as  to  thc 
neces>ity  for  such  arbitrary  jiowers;  and  l)y  an  aniending  act  of 
March  ir,.  lit].",  British  civilian  subjects  were  given  the  right  to 
claim  a  trial  by  a  civil  court  with  a  jury,  unless  for  offenses  tried 
before  a  court  01  summary  jurisdiction.  Ikit  it  was  provided  that 
in  case  of  invasion  or  other  speci.il  military  emergencv,  the  right 
to  trial  by  civil  court  and  a  jury  might  be  suspen.led  by  proclama- 
tion, either  generally,  or  as  to  any  .specified  area.  ' 

■4  and  .=;  r.c.  \'.c  2<).M.  (,2:  5  Coo.  V.  c.  8.  Manual  of  V.„u■r.|,■n,■^  /..-,;. 
tshlum.  i9I4.  pp.  ^^,  20,  U:  StippUnioiit   No.  Z,  p    14 

'  H.ity   and    MnrKan:    \lar.   Its   („.„/.«(   and    I.caal   h'r.uills.      if     II     M 
Bowman;     '.Martial    Law    in    KiiKJan,!"    in    Muiuaan    la;K'    AVm.'u'     \v     <M 
( I'lccinhcr,  lyilo.  '        ' 

'4''''r.  ^-  '■  ■"■  "'J"""'  "/  '^'"■■rn.HiX  l.yislati.'H.  .Sn,,pl,.„utit  \.-  .(. 
p  „iK  Iho  ima-uros  taken  ui  Irrlaml  on  the  iipnsniK  m  Diiblni  witc  taken 
inidiT  the   latter  nanuil  proviso. 


124 


BRITISH    WAR    ADMINISTRATION 


Restrictions  on  Aliens 

c  .  the  hr.st  Aliens  Restriction  Order  in  Council  was  issued 
This  ,.as  supplemented  by  several  ac  Jitional  orders  in  Au"st 
anc   by  a  new  consolidation  order  on  September  9.  1014  ■     Fu 

^ollowed  by  additional  modifies  '  "'"'  '"  ''''"  '''' 

^"fv:;s^^^::rrrrS^^ 

'n  the  kingdom     Aliens  could  .ntJ     ,    "'^""  ''"''  movements 

or  tne  lielg.an  Government,  to  Belgian  refugees  '     Sfill  L 
Mves.  more  ,ha„  ,!,„e  /.llon'TjZ'Z'  '""""""T'  ""'"^ 

™s.  .„,  „H.,,  /acH,s;a:^.rx.::^.;rzr 

,-)'^»"<'l  of  F.mergency  Legislation    1914   nn   d«  ^i   /;e   ^^   ^„ 
Order  of  Xovember  ZB,  1914      l/n  ■!,!,/  ??  c  '  "'  "^^^  ^'  '^■ 
plement  \o.  2,  p.  45.  ■"a'.Mfl/  of  Emergency  Legislation    Sup- 


^£S^S.^u££«&^^% 


DEFENSE    OF   THE    REALM 


125 


tary  or  naval  maps,  cipher  codes,  etc.  Restrictions  were  placed 
on  the  circulation  among  alien  enemies  of  newspapers  in  enemv 
language,  and  also  on  carrying  on  any  banking  business  bv  alien 
enemies  ' 

Provision  was  made  for  alien  officers  to  carry  out  these  orders, 
who  were  to  be  immigration  officers  under  the  Aliens  Act  of 
1905.  and  other  persons  appointed  bv  the  Home  Secretary 

On  October  >.\  1))U.  the  Home  Office  issued  a  statement  on 
the  control  of  aliens  and  espionage.  About  !»,n00  Germans  and 
Austrians  of  military  age  had  been  arrested  and  held  as  prisoners 
of  war  in  detention  camps.  ■ 

The  early  regulations  made  no  provisions  for  interning  alien 
enemies  as  a  class,  nor  for  dealing  with  naturalized  British  citi- 
zens with  enemy  affiliations,  unless  in  cases  of  .special  suspicion. 
In  March  the  Home  Secretary  announced  that  the  responsibility 
for  the  internment  and  release  of  aliens  had  rested,  except  for 
a  few  weeks,  with  Lord  Kitchener,  the  Secretarv  of  State  for 
War.     But  popular  violence,  following  the  sinking  of  the  Lusi- 
tania.  and  other  German  war  methods,  led  to  a  change  of  policy. 
On  May  i:i,  V.nr,.  the  Prime  Minister  announced  that  all  adult 
male  enemy  aliens  of  military  age  would  be  interned ;  male  aliens 
above  military  age  would  be  deported ;  and  women  and  children 
m  suitable  cases  would  be  repatriated.     Bv  a  regulation  of  June 
10.  naturalized  citizens  "  of  hostile  origin  "  were  made  subject 
to  restrictions  or  internment.     An  Aliens  Advisorv  Committee 
was  established  in  the  Home  Office,  presided  over  bv  judges  of 
the  High  Court,  to  consider  appeals  from  persons  against  whom 
orders  of  restriction  or  internment  were  made.  '    There  was  also 
set  up  an  Aliens  Restriction  Committee  and  a  Civilian  Intern- 
ment Committee. 

On  June  10.  the  Home  Secretary  reported  that  large  intern- 
ment camps  had  been  established  on  the  Isle  of  Man  :  of  l..'-,42  ap- 
plications for  exemption.  i>8G  had  been  granted  and  l,'2r,G  re- 

•  ?L^"  ^'°.  f-  '^"^'^  '°,'  '^'•''  "--d"  ■'-'■  •»•  August  20  1914 

,i'f"«i?(  "/  l-'ncrgcncy  Ufiislatuni.  pp.  516-520 
I  he  Times  History  and  lincyclopedu,  of  the  War,  v.  ch.  90   pp   297-298 


K'iSajKi 


126 


BRITISH    WAR    ADMINISTRATION 


fused.  Exemptions  were  usually  granted  to  men  supporting 
British  wives  and  families  who  established  their  claims  to  he 
harmless;  and  also  to  those  who  while  technically  alien  enemies 
were  of  friendly  nationalities— such  as  Bohem'ians,  Slovenes 
Serbs,  Croats,  Poles,  Schleswig  Danes,  and  Greeks.  Armenians 
and  Syrians  from  Turkev.  - 


Defense  of  the  Realm  Regulations 

On  August  12,  11)14.  the  date  of  the  passage  of  the  first  De- 
fense of  the  Realm  Act.  a  series  of  Defense  of  the  Realm  Regu- 
lations were  issued  by  Order  in  Council.  These  comprised  :n 
paragraphs,  grouped  in  three  parts:  general  regulations:  regu- 
lations specially  designed  to  prevent  persons  communicating  with 
the  enemy  and  obtaining  information  for  d-::,:oyal  purposes,  and 
to  secure  the  safety  and  means  of  communications  and  of  rail- 
ways, docks  and  harlxirs:  and  supplemental.  Additional  Orders 
in  Council  were  issued  <in  September  1  and  17  and  October  14 
amending  these  regulations,  under  the  Ip-ger  powers  of  the 
.second  Defense  of  the  Realm  .\ct.  '' 

On  November  I's.  after  the  pas.sage  of  the  Defense  of  the 
Realm  (Consolidation)  Act.  a  new  series  of  consolidated  regu- 
lations were  issued,  which  yvere  aftenvards  amended  and  sup- 
plemented from  time  to  time.  The  consolidated  regulations  com- 
prised <;;)  paragraphs,  aggregating  nearly  three  times  the  length 
ol  the  fir.st  scries,  and  were  classified  under  the  following  heads: 
genercil  regulations :  provisicjns  respecting  the  collection  and  com- 
munication of  information,  etc  :  provisions  against  injury  to 
railways,  military  w(;rks.  etc. :  provisions  as  to  arms  and  explo- 
sives: provisions  as  to  navigation:  mi.scellaneous  offenses: 
powers  of  search,  arrest,  etc.:  trial  and  punishment  of  offenses' 
supplemental.  * 

^'  VVic  Political  Omirterlx.  \o.  7.  p    134 

101  ■;//'"■"'?  ^-"J''  '^'"'''-^'-  ^-^  ■♦•♦•*  'September.  1917)  ;  Order  of  Jaimarv  7 
\9\5    Manual  ot  I:, ncrg.ncy  Ugislation.  Supplement.  So.  3,  p   246  ^      ' 

No.  2  p."99.  "'   ''■'""■"'"'^'  '-••;?"''"'•"'.  '"Jl-t.  pp.   146,  151.   154;   Supplement. 

'Ibid..  Supplement.  Xo.  2,  pp.  104-122. 


DEFENSE    OF    THE    REALM 


12: 


In  lOlo  a  Defense  of  the  Realm  Rej^ulations  Cnmmittee  was 
established  at  the  War  Office,  with  representatives  of  all  the  {gov- 
ernment departments,  to  discuss  details  of  proposed  amendments 
to  the  refjulations.  ' 

From  \oveml)er.  1!)14.  to  May  :?1,  1017.  there  were  issued  .'d 
Orders  in  Council  amending  the  Defense  of  the  Realm  Regula- 
tions, making  extensive  revocations  and  additions.  By  the  latter 
date  the  code  of  regulations  had  increased  from  O;?  to  20)) ;  and 
the  consolidated  regulations  comprised  132  pages  in  the  Defense 
of  the  Realm  Manual  issued  at  that  time.  -  Further  amendments 
and  additions  have  continued  to  be  made  from  time  to  time ; 
and  revised  editions  of  the  regulations  have  been  issued  each 
month. 

The  regulations  begin  with  the  following  statement  of  general 
princiji'es: 

The  ordinary  avocations  and  the  enjoyment  of  property  will  be  interfered 
with  a^  little  as  may  be  permitted  by  the  e.xigencies  of  the  measures  required 
to  be  taken  for  securing  the  public  safety  and  the  defense  of  the  realm,  and 
ordinary  civil  otTenses  will  be  dealt  with  by  the  civil  tribunals  in  the  ordinary 
courts  of  law. 

.\t  the  same  time  the  enormous  scope  of  governmental  con- 
trol asserted  by  and  exercised  under  these  regulations  may  be 
indicated  by  the  headings  under  which  they  are  grouped,  in  the 
edition  for  October  ;51,  l'J17  : 


Occupation  and  control  of  land  and  buildings,  control  of  food 
supplies,  securities,  war  materials  and  means  of  production. 

Control  of  motor  spirit. 

Clearance  of  areas. 

Control  of  meetings,  recreations,  fairs  and  holidays. 

Control  of  mines. 

Control  of  canals. 

Control  of  licensed  premises,  intoxir  its,  hours  of  business, 
and  places  of  public  entertainment. 

Control  of  lights  and  sounds. 

'  Liberal  Year  Book.  1917,  p.  151. 

'  Dffcnsc  of  the  Realm  Manual.  4th  edition,  pp.  iv.  29-160. 


yH^kK'' 


128 


BRITISH    WAR    ADMINISTRATION 


iouer  .0  recu.re  iniormation  as  to  businesses  and  agricul- 

bX;''°"  ^"'-  destruction  of  public  works. 

Air  raid  precautions. 

'^andXSs  ^°""''^"  ^"^'  -—cation  of   .nfor.ation 

"^  u;?14.Se"^'  ^PP^°^^"  '°  P'-"  "^  "--a.  or  .iii- 
Munitions.  metals  and  war  material 

Bunal  ot  enemies 

Sl^^^t^r"''  ■■"'"  '°^  "^^^'-  -*"^-y  -  --itions  area. 
Intoxicants,  drugs  and  malingering 
Lnauthonzed  use  of  uniforms,  badges  etc 
Duties  ot  employers  of  males  of  l(f  years  or  over 
Banking  an<l  exchange  transactions.  ^ 

FaSinlr  "  ""i'^  """'"•■>■  d"''^-^  ^"d  with  war  supplies 

son'atlon"  '"  '''''''•  '^''^  -P^-ntation.  forg'efl  Ind  per- 

Fa  .e  passports,  etc. 

Assisting  pri.soners  of  war  or  interned  persons 

General  provisions  as  to  offenses  l^'^*""^. 

Powers  of  search,  interrogation  and  arrest 

^pecial  police  and  fire  brigade  areas 

i  rial  and  punishment  of  offenses 

baving  of  powers. 

Notices  and  permits. 

^^•nl'^rn"/'^  Competent  naval  and  militarv  authorities    and 
interpretation  ot  regulations.  "  '"■^'"^s,  and 

Gexeral  Orders 

Under  powers  conferred  by  the  Defense  of  the  Realm  Acts 
and  Regulations  hundreds  of  orders  have  been  n>ade  bv  the  var  ^ 
ous  government  departments  and  officials.  Most  num;rous  have 
been  those  issued  by  the  Army  Council,  the  Minister  of  Muni 


/ 


•«L^V  * 


DEFENSE    OF    THE    REALM 


120 


tions  and  the  Board  of  Trade.  But  important  orders  of  a  gen- 
eral character  have  also  been  issued  by  the  Admiralty,  the  Treas- 
ury, the  Secretary  of  State  for  Home  Affairs,  the  Local  Ciov- 
ernment  Board,  the  Secretary  for  Scotland,  the  agricultural  de- 
partments and  the  Food  Controller.  The  general  orders  i-.,ued  up 
to  May  ol,  r.UT,  filled  42.">  pages  in  the  4th  edition  of  the  De- 
fense of  the  Realm  Manual,  grouped  in  ;>7  classes.  ' 

Some  indication  of  the  wide  scnpe  of  powers  exercised  may  be 
indicated  by  noting  some  of  the  principal  topics  on  wliich  nrders 
have  Ijeen  issued  by  the  several  departments. 

Admiralty  (jrders  have  dealt  mainly  with  navigation,  includ- 
ing general  warnings  to  mariners,  departures  frdui  furmer  col- 
lision regulaticjns,  rules  as  to  ships'  lights  and  mine  protection 
gear,  and  the  pilotage  of  vessel^.  One  order  rec|uired  information 
from  manufacturers  and  dealers  in  chronometers. 

Army  Council  orders  dealt  largely  with  war  materials — mainly 
agricultural  and  animal  products,  including  forage,  te.xtiles,  tim- 
ber, hides  and  leather.  One  class  <>f  such  orders  provided  for 
taking  possession  of  such  war  materials :  another  class  regulated 
or  prohibited  their  manufacture  or  sale :  a  third  class  provided 
for  the  carrying  on  of  work  and  the  employment  of  workmen; 
and  a  fourth  class  required  particulars  oi  businesses  of  persons 
engaged  in  producing  or  dealing  in  such  mater'als.  Other  orders 
of  the  -Army  Council  requisitioned  the  output  of  certain  factories 
and  workshops ;  called  for  returns  of  agriculture :  constituted 
special  military  areas;  regulated  dealings  in  arms,  amnumition 
and  military  explosives;  and  '•egulated  the  supply  of  drugs  for 
the  army. 

One  class  of  army  orders  were  those  issued  by  the  Quarter- 
master General  of  the  forces,  as  a  "  competent  military  au- 
thority," requiring  censuses  of  horses  and  mules,  live  stock  and 
implements  and  wool. 

Orders  issued  by  the  Minister  of  Muni:ions  also  dealt  in  large 
part  with  certain  classes  of  war  materials — mainly  those  of  min- 
eral and  metallic  character,  such  .ih  aluminum,  brass,  copper, 

'  Defense  of  the  Realm  Manual.  4th  edition,  pp.  161-585. 


II  ; 


130 


BRITISH    VVAR    ADMIXISTRATION 


'■il. 


^^a  die  :eTr  '"r""'^'^^-  "'^'^'-  '^^-^-'  --- 

and  fats,    it  n'anuf^^^^^^^^^^^  "'•'^'^"^''^  ^^'^'  -^  ^'-  oi's 

plies  was  reguS"  r;^     ,  f7f;"/'""f '■■^'?''-^^-P- 
sucharticIespa^ticularsoft^  ^"'^  ,^.  """il'er  or  groups  of 

quired ;  and  o^d  rs     ^  e    ^td  ZTfX  '"  '''  '"'•'""  ^^'^^^  ^- 
such  articles.  '  ^^"""^  possession  of  a  few 

ruSt;^:^^  l;:^  'IT-  "^  ^^-*^-s  established 
of  workmen      :?r^nlrrict"eV      "'''•'^"^"'  °^  ^"P'^'"^™-^ 

and  directions  as  toTa'rtXusinre'rOthe'r-    "'  '"''' 
regulated  and  restricted  \Ju  ^'  ''^''*^'  "'  '^'"^^'•s 

ing  possession  of  roa      .         ^"^  construction,  provided  for  tak- 

mines,  and  o  anas  amlT  "r"  '^''"^  P°"^"'°"  "^  -^' 
supplies  of  ilt's  and  of  ^"^"'  '''T"'  ''''  --"*^"-^ce  of 
the  loading  oiT'"ll^^^^^^^^^  '■"^^'°-  -  '- 

spirit.  "^  '  ''"  -^"PP'-^'  -^^  '"fo^ation  as  to  motor 

th '  wi  tr?^:"t:^:::^  r  ^  ^^  ^^--  -nected  ..th 

bv  the  Port  and  Trnn       r        '       P°"  authorities  were  issued 
London  aul:;:      I^  ^  ';:^;:  n  T^^'Tu     ''''  ''"'  ^^ 

^^^  new  schedules  of  :^:':::[^::-  ^- ^7^  - 
of™ies.p^.x---~^^^^^ 

Urders  were  made  hv  the  ^ecretirv  ni  <f.,    i      tt 
in  rpfrnrJ  f ,  ■  '  ecretar\  ot  btate  tor  Home  Affairs 

opium.     The  Loc-,1  (   .w  >  "^  '"  '^•^^'"^  and 

Local  C,overnment  Board  for  England  and  Wales 


DEFENSE    OF    THE    REALM  131 

made  orders  as  to  the  powers  of  local  authorities  for  the  main- 
tenance of  food  supplies. 

Similar  orders  were  made  by  the  Secretary  for  Scotland  con- 
cerning films,  lighting  regulations,  the  early  closing  of  shops  and 
the  powers  of  local  authorities. 

The  Chief  Secretary  for  Ireland  made  orders  prohibiting 
drilling.  ^ 

Orders  were  issued  by  the  Board  of  Agriculture  and  Fisheries 
relatmg  to  the  cultivation  of  lands,  war  agricultural  executive 
committees  and  the  drainage  of  lands;  birds  and  rabbits;  forms 
for  agricultural  returns  required  by  the  .Army  Council ;  and  ag- 
ricultural employment. 

Similar  orders  «vere  made  by  the  Board  of  Agriculture  for 
Scotland  in  reference  to  the  cultivation  of  lands,  rabbits,  and 
forms  for  agricultural  returns ;  and  orders  were  also  issued  au- 
thorizing the  killing  of  deer  causing  injury. 

The  Department  of  Agriculture  and  Technical  Instruction  for 
Ireland  made  orders  excepting  certain  holdings  of  land  from 
cultivation ;  and  also  a  series  of  local  orders  relating  to  fishing. 
A  numerous  series  of  orders  was  made  by  the  Food  Controller 
for  the  maintenance  of  .supplies  of  articles  of  food,  dealing  with 
beans,  peas  and  pulse,  bread  and  cereals,  conditions  on  the  sale 
of  food,  fish,  hoarding  of  food,  into.xicating  liquor,  meat,  milk 
and  cheese,  public  meals,  sugar  and  tea.     (C/.  Chapter  X. ) 


Special  Constables 

By  acts  of  August  10  and  2H,  ]!>]4,  Orders  in  Council  were  au- 
thorized providing  for  the  appointment  of  special  constables  un- 
der the  act  of  October  15,  ],s;il.  and  the  Municipal  Corporations 
Act  of  18S2.  in  the  absence  of  riots  or  other  disorders.  Orders 
in  Council  were  issued  on  September  !),  for  Scotland  on  Sep- 
tember 17,  and  for  Ireland  in  March.  l!)l.'i;  and  these  were 
amended  from  time  to  time.  ' 

Supplcmfiu  No.  4,  pp.  9,  392,  393.  '  '^'     ^  *'  ^"'- 


M 


.1  ' 
111  I 


132 


BRirrSH    WAR   ADMINISTRATION 


Specal  constables  appointed  by  the  local  police  authorities  un- 
der these  prov.s.ons  rendered  effective  service  in  con  o  1  ne 
traffic,  enforcng  lighting  regulations  and  in  connection  whh 
German  raids  on  the  East  Coast 

Defense  of  the  Realm  Regulation  55  A.  issued  January  04 
01..  atUhon.ed  a  Secretary  of  State  to  establish  special  pol  ce' 
ar  as.  and  to  place  the  police  in  any  such  area  under  the  contro  o 
n  s  ngle  author.ty.     No  order  creating  special  police  areas  wa 
made  up  to  May  31.  1917.  > 


\i    i 


It*  ' 


Control  of  Lights  and  Business  Hours 
Regulations  for  the  control  of  lighting  were  first  issued  fnr 
L..ndo„  an,  ,he  Metropolitan  Police  DistWct  on  OctobeM    10  4 

December  0   w.th  later  amendments.     From  time  to  time  special 

places  on  the  east  and  south  coasts:  and  on  April  S    r.i-,    ^ 
^enes  ot  general  orders  were  made  covering  prohibited  areas' in 

irom  Dorset  to  Cumberland  and  in  Scotland  ' 

Zeppelm  raids  in  the  autumn  of  101.5  led  to  further  regulations 
A  new  order  by  the  Home  Secretary  on  September     ftred 
ten.fied  restrictions  for  the  metropolis:  and  still  further  re 
tr    no.,  .ere  imposed  by  orders  of  March  10  and  Augu     Z, 

no  i  an  .r       ^  ?'^"'  ""'  '"  "^•^'■"^  ""t^i^'e  of  the  metro^ 

pol  tan  area  were  made  on  July  Jo  ,„,,  October  !).  lOlO-  and  re- 

->.  i.li,.  u,th  later  modifications  and  additions  » 
lOI^f  amho"r'  ''1'  ''r'"  '''^"'^^'°"  "^  ^-  -''-P^-'  0<^'o'-r  24. 
uhich  an>  trade  or  business  might  be  carried  on.    Orders  for  this 
purpose  were  issue.l  for  the  winter  of  lOlO-lT :  and  n";  Le;! 
;  Pefcsc  of  the  Realm  Manual.  4th  ed    „   146 
ncfcse  of  ,h,-  Realm  Manual  4,h  'cd    pp.  477-498. 


■Pi_ 


DEFENSE    OF    THE    REALM 


133 


were  issued  in  April,  1!>17,  for  the  summer  months,  requiring 
the  closing  of  shops,  with  certain  exceptions,  at  0  o'clock  in  the 
evening  on  Saturdays  and  at  8  o'clock  on  other  days.  ' 

By  the  Summer  Time  Act  of  191G,  the  time  for  general  pur- 
poses during  the  months  from  April  to  September  was  fixed  at 
one  hour  in  advance  of  Greenwich  mean  time:  and  by  Order  in 
Council  this  act  was  again  put  in  force  for  1917.  ' 


Censorship 

Before  the  war  no  definite  machinery  or  rules  for  a  system  of 
censorship  had  been  in  existence;  and  in  organizing  an  entirely 
new  service  for  this  purpo.se,  difficulties  of  administration  arose, 
and  the  earlier  tentative  measures  were  changed  from  time  to 
time.  There  had  been  created  a  press  cf)mmittee,  consisting  of 
representatives  of  the  principal  newspapers  and  of  the  War  Office 
and  the  Admiralty,  in  which  the  military  and  naval  representa- 
tives gave  indications  as  to  the  material  the  publication  of  which 
was  not  considered  desirable.  ^ 

Early  in  August,  lOU,  a  double  system  of  censorship  for  the 
press  was  established,  by  the  War  Office  and  the  .Xdmiralty— 
one  dealing  with  press  cable  dispatches,  and  the  other  with  other 
press  news.  Press  cable  censors  were  appointed  at  each  of  the 
ten  or  a  dozen  offices  from  which  press  dispatches  were  sent 
abroad— a  total  of  so  or  1)0  censors,  who  served  in  relavs  vi  as 
to  provide  a  continuous  service  day  and  night.  This  arrange- 
ment lacked  unity  of  action,  even  among  the  cable  censors;  and 
unusual  and  irritating  delays  were  cau.scd  by  duplicate  cen.sor- 
ing  of  the  same  messages  at  several  points.  ' 

In  addition  to  the  cable  -ensors,  the  War  Office  and  the  Ad- 
miralty al.so  estai)lished  a  district  press  bureau  "  for  the  coordi- 
nation and  distribution  of  official  news  relating  to  military  and 
naval  affairs  and  matters  concerning  the  progress  of  the  war 
'  Pcfnisc  of  th,-  Realm  Manual,  4th  c<l.,  pp.  76.  473-475 
.  ^l^".^  7  Cioo.  V,  c   14.  45  :  /).•/.....,.■  of  ,hc  Realm  Ma„ual.  4tli  .d  ,  ,,.  481. 

'  Revue  du  Droit  I'ubite.  etc..  vol.  ,12.  p.  olo. 


134 


BRITISH    WAR   ADMINISTRATION 


I   1 


ill 


which  could  advisedly  be  made  public."  This  bureau  was  placed 
under  the  supervision  of  a  civilian  director  (Right  Honorable 
F.  E.  .<^mith.  M.P.),  who  had  access  for  consultative  purposes 
to  the  First  Lord  of  the  Admiralty,  the  Secretary  of  State  for 
War,  and  m  matters  of  doubt  to  the  Prime  Minister  The  staff 
of  the  bureau  consisted  of  military  and  naval  officers;  and  re- 
quests that  professional  journalists  be  added  were  denied.  There 
were  also  several  civilian  secretaries  and  a  number  of  army  and 
navy  officers  attached  to  this  bureau,  which  gave  out  official  state- 
ments from  the  military  departments  and  passed  on  non-official 
mtormation  submitted  by  the  newspapers. 

The  two  groups  of  censors  led  to  much  inconvenience  and  in- 
consistent and  conflicting  decisions.  At  the  end  of  August  it 
was  announced  that  a  central  office  for  press  cables  wouid  be  es- 
tablished under  the  press  bureau,  and  a  double  register  of  de- 
cisions would  be  kept.  When  transferred,  the  press  ,  ible  cen- 
sors brought  with  them  instructions  in  considerable  detail  issued 
by  the  chief  cable  censor  at  the  War  Office.  On  September  <) 
the  Home  Secretary  announced  that  he  had  accepted  responsi- 
bility for  the  work  of  the  press  bureau.  The  same  director  re- 
mained in  charge  until  his  departure  in  October  for  military 
service,  when  his  place  was  taken  by  another  civilian,  the  Solici- 
tci  General  Sir  Stanley  Buckmaster.  ' 

On  October  2C.  1914.  a  memorandum  of  instructions  was  is- 
sued to  all  censors  in  the  press  bureau;  and  from  time  to  time 
instructions  to  the  press  were  issued.  An  explanation  of  the 
w(Tk  ot  the  bureau  and  the  general  policy  was  made  bv  the  di- 
rector ill  the  House  of  Commons  on  November  2C. 

In  a  memorandum  on  the  official  press  bureau,  issued  early 
m  l!)i:,.  the  staff  of  the  bureau  was  announced  as  consisting  of 
the  director,  two  assistant  directors,  a  secretary  and  about  r.O 
censors.  The  latter  included  naval  officers  appointed  bv  the  Ad- 
miralty, military  censors  appointed  b^-  the  War  Office  (from 
senior  officers  attached  to  the  General  Staff),  and  civilian  cen- 

454-SM;  rjK'SrU^Ul'u^;  '•  '''''''■  ''"'''""'"""'y  ^'baUs.  vol.  66.  pp. 


ZTIT* 


i^r'.^^^^'-^r  ^'iis^^ 


;i*r 


^ 


DEFENSE    OF   THE    REALM 


13£ 


sors  appointed  by  the  director,  including  former  civil  servants, 
barristers  and  journalists.  In  October,  1915,  there  were  122 
persons  employed  by  the  press  bureau.  There  were  also  150  ca- 
ble censors,  under  the  chief  cable  censor,  as  well  as  700  postal 
censors. 

•All  press  cable  messages  to.  from  or  through  London,  were 
diverted  to  the  bureau.  Submission  of  other  press  matter  was 
optional ;  but  those  who  published  without  submission  did  so  at 
their  own  risk.  Most  of  the  newspaper  press  submitted  a  large 
amount  of  matter  relating  to  naval  and  military  matters,  ques- 
tions of  foreign  policy,  etc.  The  voluntary  feature  was  said  to 
account  for  many  complaints.  Some  journals  would  print  re- 
ports without  submission,  which  other  journals  had  submitted 
and  had  had  rejected. 

Reports  on  the  war  issued  by  any  government  department  for 
publication  were  sent  to  the  press  bureau,  and  from  there  distrib- 
uted to  the  press.  ' 

Numerous  criticisms  of  the  press  censorship  appeared  from 
time  to  time.  Objection  was  made  to  the  lack  of  uniformity  of 
treatment;  and  to  the  failure  to  give  out  information  of  interest 
and  value  though  of  no  military  benefit  to  the  enemy.  The  press 
bureau  was  said  to  be  only  a  conduit  to  transmit  what  had  been 
sanctioned  by  the  War  Office  nnd  General  Headquarters;  and 
special  complaint  was  made  of  the  absence  of  information  as  to 
the  service  of  particular  units,  even  after  operations  in  which  the 
units  engaged  must  have  been  known  to  the  enemy.  It  was  urged 
that  the  censor  should  be  entrusted  with  positive  as  well  as  nega- 
tive functions;  and  should  be  required  to  furnish  newspapers 
with  material  for  articles  on  all  matters  the  publication  of  which 
would  assist  the  cause  of  the  Allies.  ^ 

Further  restrictions  on  the  press  were  imposed  by  Orders  in 

Council  of  February  2!)  and  April  22,  1910.    The  former  made 

it  aa  offense  for  any  person  without  authority  to  have  in  his 

possession  any  document  containing  a  report  or  statement  i)ub- 

,,  ,'  Memorandum  on  the  Official  Press  Bureau:  Partiamentarv  Paters    1915 
Cd.  7680.  .        t      . 

lUiarlcrly  Rcvicu:  vol.  225.  pp.  156.  163   (January.  1916). 


1 

■a 
i  I 

i 


136 


BRITISH    WAR   ADMINISTRATION 


licat.on  of  which  was  prohibited.     The  latter  of  these  orders 
prohibited  the  publication  of  the  proceedings  of  any  Cabine' 
meeting  or  of  any  secret  session  of  either  House  of  Parliament 
The  latter  order  met  with  vigorous  criticism  in  the  press,  in  the 
House  of  Lords  and  in  the  House  of  Commons.  ' 

Occasionally  the  circulation  of  certain  journals  has  been  sup- 
pressed. This  was  done  with  the  Globe,  a  Tory  journal  in  No- 
vember. 101,-,  and  also  with  Forzivrd,  a  Glasgow  Socialist  news- 
paper, in  January.  l<>l(i.  =  A  prohibition  was  placed  on  sending 
the  Labour  Leader  out  of  the  countrv;  and  later,  for  a  time  the 
foreign  circulation  of  the  weekly  Nation  (Liberal)  was  pro- 
hibited. The  latter  action  was  said  to  have  been  taken  by  the 
Intelligence  Department  of  the  War  Office,  without  consulting 
the  government  nor  the  propaganda  department  of  the  Foreign 
Office;  though  it  was  afterwards  announced  that  the  action  was 
approved  by  the  Home  Office  and  the  propaganda  department 
ot  the  Foreign  Office. 

In  addition  to  the  press  censorship,  a  censorship  of  foreign 
mails  was  also  in  operation  early  in  l!)ir,.  This  was  based  on  a 
provision  of  the  Post  Office  Consolidation  Act  of  1908.  empower- 
ing a  Secretary  of  State  to  authorize  the  opening  or  detaining  of 
postal  packets.  »  The  Postal  Censorship  was  under  the  control 
of  the  War  Office,  acting  in  cooperation  with  the  Post  Office  and 
under  the  authority  of  the  Home  Secretary.  * 

\\'ith  the  development  of  the  blockade'and  the  extension  of 
the  doctrine  of  continuous  voyage  to  restrict  trade  in  neutral 
ships  held  to  be  from  or  destined  to  enemv  countries,  a  system- 
atic censorship  and  examination  of  mails  carried  on  neutral  ships 
was  inaugurated.  Xeutral  ships  were  required  to  enter  British 
ports  tor  the  examination  of  their  cargoes  for  contraband;  and 
the  mails  were  examined  either  at  the  port  or  at  London. 

This  practice  was  objected  to  by  neutral  countries,  and  notably 
by  tiie  United  S.ates.     It  was  defended  as  a  necessary  measure 

'  r^cvuc  du  Droit  Puhlic.  etc.,  vol.  33,  n  3.37 
■  I  hid.,  p.  13. 

|S.Tfion  56:  Parliavu-ntary  Debates,  vol.  (,').  „  266 
Kcport  of  the  Postmaster  General,  1914-15 


DEFENSE    OF    THE    REALM 


137 


for  the  enforcement  of  the  blockade  and  the  detection  of  contra- 
band. Parcel  post  was  stated  to  be  in  the  same  class  as  other 
merchandise;  while  contraband  articles  were  frequently  found 
in  letter  mail.  The  seizure  of  securities  and  remittances  to  or 
from  enemy  countries  was  considered  as  justifiable  prize;  and 
it  was  urged  that  information  obtained  from  examining  the 
mails  was  of  value  in  detecting  plots  for  evading  the  blockade 
and  transmitting  supplies  to  the  enemy.  The  prohibition  on  enemy 
publications  was  said  to  be  necessary  to  prevent  the  circulation 
of  propaganda  and  seditious  and  inflammatory  publications.  De- 
lays caused  by  the  examination  of  the  mails  were  said  to  have 
been  reduced  to  a  minimum.  ' 


Control  of  Liquor  Traffic 

From  early  in  the  war  the  sale  of  intoxicating  liquors  was 
subjected  to  special  restrictions,  which  have  been  extended  from 
time  to  time;  and  from  June.  1!)1.">,  the  regulation  of  this  traffic 
was  placed  under  a  newly  created  central  board  of  control.  Later 
in  connection  with  the  regulation  of  food  supplies,  restrictions 
have  been  placed  on  the  manufacture  of  liquors,  as  a  means  of 
conserving  food  supplies. 

Under  the  first  series  of  Defense  of  the  Realm  Regulations 
(of  August  12,  1!)14),  any  competent  military  or  naval  au- 
thority could  by  order  require  all  premises  for  the  sale  of  intoxi- 
cating liquor  within  or  in  the  neighborhood  of  any  defended  har- 
bor to  be  closed  except  during  such  hours  as  might  be  specified  •  i 
the  order;  and  prohibit  giving  intoxicating  liquor  to  members  ot 
His  Majesty's  forces,  with  the  intent  of  eliciting  informati.n, 
or  to  any  such  member  employed  in  the  defense  of  an\-  railway, 
dock  or  harbor,  or  when  on  sentry  or  other  dutv.  By  the  regu- 
lations issued  in  September,  these  restrictions  were  made  appli- 
cable to  any  proclaimed  area.  - 

'  Pamphlets  on  "The  Mail.';  as  a  German  War  Weapon,"  and  "  Whv  Mail 
awT         "*  ^'''^'  ^^  ^'''^^'  Britain.'    T,  W.  Koch  m  Library  Journal,  42  :  W7 

149   4n"4*i'4°"''  '  ""''  '^'  •''""""'  "/  i^'i'crgcncy  Ui/islatiot,  1914,  pp.  147, 


138 


BRITISH    WAR   ADMINISTRATION 


fe,   i 


if 


On  August  31,  1914.  an  Intoxicating  Liquors  (Temporary 
Restrictions)  Act  became  law.  which  authorized  the  justices  for 
any  licensing  district,  on  the  recommendation  of  the  chief  officer 
of  police,  to  direct  that  the  sale  or  consumption  of  intoxicating 
liquor  in  licensed  premises  or  registered  clubs  be  suspended  dur- 
ing such  hours  and  under  conditions  and  exceptions  specified  in 
the  order — with  the  proviso  that  any  order  to  suspend  before 
nine  o'clock  at  night  should  be  subject  to  the  approval  of  the 
Secretary  of  State. ' 

The  need  for  further  restrictions  on  the  sale  and  use  of  liquor 
became  more  evident  in  the  spring  of  IDlo,  and  proposals  for 
government  purchase  and  management  of  the  traffic  were  made. 
A  committee  of  nine  members,  with  Herbert  Samuel  as  chair- 
man, was  appointed  to  advise  the  government  on  the  financial 
arrangements  needed  if  the  state  should  purchase  the  breweries, 
control  the  liquor  trade  and  prohibit  the  retail  trade  in  spirits. 
This  committee  made  a  report  in  April.  1915.  that  the  estimates 
furnished  indicated  a  total  outlay  of  approximately  £250,000.000 
to  carry  out  this  policy. '  No  action  seems  to  have  been  taken  on 
this  plan,  probably  in  view  of  the  new  policy  of  regulation 
adopted. 

By  the  Defense  of  the  Realm  (Amendment)  (No.  3)  Act  of 
May  19.  1915.  power  was  given,  by  Orders  in  Council,  to  define 
areas  for  the  control  of  the  sale  and  supply  of  intoxicating  liquor, 
and  to  issue  regulations,  giving  the  prescribed  government  au- 
thority power : 

(a)  of  selling,  supplying  or  controlling  the  sale  or  supply  of 
intoxicating  liquor  in  any  prescribed  area ; 

(  b)  of  acquiring,  compulsorily  or  by  agreement,  either  for  the 
period  of  the  regulations  or  permanently,  any  licensed  premises 
or  l)usiness  in  such  area ; 

( c )  tri  establish  and  maintain  refreshment  rooms ; 

(d)  to  make  modifications  or  adjustments  in  the  relations  be- 
tween persons  interested  in  lirensed  premises ;  and 

'  4  and  5  Cifo.  V.  c.  77:  Manual  of  l.mcrqcucs  Legislation,  1914,  p.  33. 
'  Report  of  the  Advisory  Committee  on  Proposals  for  the  State  Purclia*c 
of  the  Licensed  Liquor  Trade,  Parliamentary  Papers,  1916.  Cd.  8283 


■-Mm^-'f^^'w 


DEFENSE   OF   THE    REALM 


139 


(e)  to  give  effect  to  the  transfer  of  the  control  of  the  liquor 
traffic  in  such  area  and  to  modify  the  provisions  of  acts  relating 
to  the  licensing  or  sale  of  intoxicating  liquor.  ' 

Bv  Order  in  Council  of  June  10,  a  series  oi  liquor  control 
regulations  was  established,  which  provided  for  a  Central  Con- 
trol Board,  consisting  of  a  chairman  and  other  members,  to  be 
appointed  by  the  Minister  of  Munitions,  with  authority  to  ap- 
point a  secretary  and  other  officers,  inspectors  and  servants.  This 
board  was  given  enumerated  powers  of  control  over  the  sale  of 
liquor  and  licensed  premises :  and  any  contravention  of  the  Iward's 
ordeis  was  constituted  a  summary  offense  against  the  Defense  of 
the  Realm  Regulations.  - 

Further  Orders  in  Council  were  issued  from  time  to  time  ap- 
plying the  regulations  to  certain  areas.  An  order  of  July  6  de- 
fined ten  restricted  areas  in  England,  and  an  order  of  July  28 
defined  two  such  areas  in  Scotland.  Additional  areas  and  modi- 
fications of  areas  were  later  issued;  and  by  February  15,  1!)10, 
there  were  27  areas  scheduled.  By  May,  191'),  the  restricted 
areas  in  England  and  Scotland  had  a  total  population  of  30,- 
000,000.  From  March  :n.  1910,  to  February  23,  1917,  13  ad- 
ditional orders  were  made,  making  a  total  of  42  such  orders. 
The  later  orders  provided  for  the  extension  of  areas ;  and  a  con- 
siderable number  of  the  districts  first  named  were  absorbed  in 
larger  areas,  and  earlier  orders  were  revoked.  In  February,  1917, 
there  were  a  total  of  28  restricted  areas,  covering  much  the  larger 
part  of  Great  Britain,  with  a  population  of  38,000,000  out  of  a 
total  estimated  population  of  41,000,000.  No  restricted  areas 
had  been  established  in  Ireland.  ■' 

The  main  restrictions  imposed  under  the  orders  of  the  Central 
Control  Board  have  been  the  limitation  on  the  hours  of  sale— 
from  16-20  hours  to  4V2-')V2  hours  a  day.  Sales  of  intoxicating 
liquor  for  consumption  on  the  premises  in  the  restricted  areas 

'  5  and  6  Geo.  \',  cli    42;  ^[anuat  of  liitiergctuy   Legislation.  Supplcmcm 

='  \ianual  of  r.mi-riic>u-\  l.cgislaticit.  Supplement  \o,  4,  pi;.  167-175 
'Third  Report  of  the  Central  Control  Board   (Liquor    Iraftic).  April  JU, 
1917;  I'arliamcntary  Papers,  1917,  Cd.  8558. 


140 


BRITISH    WAR    ADMIXISTRATION 


if 


have  usually  been  limited  on  weekdays  to  two  and  a  half  hours 
•n  the  middle  ot  the  day  and  to  three  (sometimes  two)  hours  in 
the  evenmg— during  the  time  of  the  principal  meals.  Sales  have 
been  prohibited  before  the  midday  period,  during  the  afternoon 
and  atter  nnie  or  half  past  nine  in  the  evenings.  On  Sundays' 
in  areas  where  any  .ale  has  Ik-cu  permitted,  the  hours  have  been 
slightly  shorter  than  on  weekdays.  Treating  and  sales  of  into.xi- 
cants  on  credit  (except  for  meals)  have  been  absolutelv  pro- 
hibited. The  same  restrictions  have  been  placed  on  clubs' as  on 
licensed  premises.  Sales  for  consumption  off  the  premises  have 
also  been  closely  restricted. 

Other  restrictions  imposed  have  required  the  dilution  of  spirits 
in  increased  amounts,  and  limited  the  issue  of  new  licenses-  and 
in  some  areas  have  provided  for  the  sale  of  light  beers  (with  not 
over  two  per  cent  of  alcohol),  required  the  closing  of  licensed 
premises  (other  than  hotels,  etc.)  during  prohibited  hours,  pro- 
hibited the  sale  of  .spirits  (in  the  north  of  Scotland),  required 
Sunday  closing  and  provided  for  supervision  of  licensed  premises 
The  establishment  of  industrial  canteens  has  been  promoted  bv 
the  Central  Control  Board.     These  have  been  provided  in  some 
cases  by  employers,  in  others  by  voluntarv  agencies,  and  in  de- 
fault o.  these  by  the  board.    On  March  ;n.  1917,  there  were  1.^0 
canteens  in  national   factories  and  4-2i)  in  controlled  establish- 
ments, a  total  of  ,-,70  in  establishments  with  sno.ooo  employes 
"ut  of  a  grand  total  of  l.sj.o.OOO  in  the  national  factories  and 
controlled  establishments.     In  December  there  were  7l'0  canteens 
in  operation  or  approaching  completion.     In  addition  there  were 
about  .;0  canteens  for  tran.sport  workers  at  the  principal  docks 
Such  canteens  have  been  financially  assisted  bv  allowances  from 
the  prohts  ot  controlled  establishments  and  bv  grants  in  aid  to 
voluntary  agencies.     The  canteens  established  bv  the  board  have 
not  supplied  int...Nicants.  except  a  few  registered  as  club'.  ■ 

In  several  districts  the  Central  P.oar.l  has  taken  over  the  direct 
cnntrul  „t  the  retail  liquor  traffic-as  at  Carlisle.  Cretna     \nnan 
Invergordon  and  Enfield.     At  Carlisle,  under  tins  anangement! 
'  Third  l^cport  of  the  Central  Control  lioartl,  p.  II. 


::^,:FJiw^- 


DEFEXSE    OF    THE    REALM 


141 


42  out  of  lis  licenses  in  the  city  were  suppressed,  and  :10  out  ni 
S2  in  the  county  district.  Under  the  system  of  direct  control, 
enforcement  of  restrictions  has  been  more  effective  and  there 
has  been  a  fjreater  reduction  of  excessive  drinkinj^. 

Administration  of  the  hoard's  restrictive  orders  rests  mainlv 
with  the  local  police.  The  hoard  has  held  nume.ous  local  con- 
ferences with  chief  constables,  and  received  rejjorts  from  its 
officers  appointed  to  confer  with  the  chief  constables  and  to  in- 
vestif^ate  special  local  problems.  Delefjations  of  the  Central 
Board  have  conferred  with  military,  naval  and  civil  authorities 
at  important  centers;  and  also  with  representatives  of  employers, 
labor  organizations  and  the  licensed  trades.  '  .A  rcmarkal)le 
absence  of  friction  has  been  reported  in  carrying  out  the  restric- 
tive regulations.  Rut  supervision  has  been  said  to  be  easier  and 
excessive  drinking  less  in  the  better  and  more  comfortable 
premises  and  in  those  furnishing  food  and  recreation. 

Statistics  published  in  the  reports  of  the  Central  Control  I?oard 
indicate  a  considerable  improvement  in  conditions  under  the  op- 
erations of  the  restrictive  regulations.  The  amount  of  spirits 
charged  with  inland  revenue  duty  for  home  consumption  for 
1!»1()-17  was  2:>  per  cent  less  than  for  1!)  1:5-1 4,  and  .'30  per  cent 
less  than  for  1!)1.">-I0.  Consumption  of  beer  was  reduced  from 
;i2.000.0no  to  2(i,00(t,()00  barrels  in  1  UK!— more  than  I'o  per  cent 
below  that  for  10i;S-]4.  In  February,  1!)1T,  the  maximum  out- 
put of  beer  for  lltlT-ls  was  fixed  at  only  10,000,(100  barrels; 
but  discontent  and  protests  led  to  an  increase  being  authori.Tcd 
for  the  summer  months,  to  a  total  output  of  14.000,000  barrels. 
The  manufacture  of  spirits  for  human  consumption  was  stopped 
in  1!»17;  and  the  withdrawals  cut  down  to  one-half  that  for 
lOlti.  -  Convictions  for  drunkenness  have  been  reduced  to  one- 
fourth.  There  has  also  l)een  a  noticeable  decrca.se  in  deaths  due 
to  cirrhosis  of  the  liver,  and  a  relatively  larger  decrease  in  other 
deaths  reported  as  due  to  or  connected  with  alcoholism. 


'Tliird   Repiirt  cf  thi-  Central  Control   Board,  p.  4. 
I  hi-  War  Cabinet:  Report  for  the  Yeur  Hm. 


':T^ 


i\^M^mi 


142 


BRITISH    WAR   ADMINISTRATION 


if 
1  i 


t 


STATISTICS  SHOWING  RESULTS  OF  THE  LJJUOR  TRAFFIC 

ke(,l:latio.\s  in  great  uritain' 

Ceer  and  Si'iKiTs  Charged  with   Dltv  for  Home  Coxsumition  in 
United  Kingdom 

F.nancial  Year                                              Standa'T  Fibls.  Proo^'"Ganons 

\l\f\i       UJ72M,:,  32,596.000 

Xr^    ,„■ 29M2b.m  35,597.000 

1916-17    (prov.  ]     25.905.000  23.998,000 

WeEKLV     AvKRAGE     CoXVlCTIONs     FOR     DRUNKENNESS 

Total  Artas 

E.  &  W.  Areas  in            in 

,.               ,                                            London        Areas  Scotland  Great  Britain 

I- our  weeks  before  issue  ,,f  Orders  1,011            2.471  1  485            IQSfi 

-^>'^'\- •■-.■••, 568           1.487  047           24U 

Four  week>  ending  Jan.    28,  1917.      568            1,314  813             '127 

F-eh.    25.   1917.      476            1.193  752            1945 

Dec.         1917.  855  507 

Convictions  for  Drinkenness  Liverpool 

T      J  •"' '^'^^""g''*  Convictions    Cases  of        from* 

,01,        Londo"  overlOO.WX)  for  Delirium  E.cesMve 

^H-«,488         52.779  Drunkenness  Tremens   Drinking 

1914....  (,7.654         49.835  1913-14  13201  qil  17/; 

915...  51.8.?6         37.000  1914-15     .' i        11  P8  4^1  i^ 

1916....  29,453         23.330  1915-16...:  6,277  205  % 

avp'rL?*T?'7"".V'"r'  ^"^  ^'•""'<«i"ess  have  been  reduced  from  a  weekly 
rnR^Urd!  25:1917    '     "'  ""  '""""''  °^  '^'^  '°  '"  ^°'  '^^  f°"^  weeks  en7 

Deaths  Certified  as  Dl-    to  or  Connected  with  Alcoholism  in  England 
AND  Wales,  1913-16 

Year  Fxclii<liiig  Cirrhosis  of  Liver  Cirrhosis  of  Liver 

,.^"  Male     Female     Total  Male      Female     Total 

\tu  ]V3  T,  yji  2.215  1.665  3.880 

9  5  '•'^C'  ^"^  ■S'6  2.266  1,773  4.0.W 

9  6  fl  \^i  ^il\  2.107  1.525  3,632 

'^'''  ''20  333  953  1,823  1,163  2.986 

At  the  same  time  it  can  not  he  claimed  that  hquor  drinking  or 
the  evils  connected  with  exces.sive  drinking  have  heen  ehminated 
or  reduced  to  matters  of  httle  importance.  Complaints  have 
been  made,  not  only  of  continued  rlrunkenness  and  serious  social 

'Liquor  Control  Board  Third  Report  (1917),  pp.  17,  19. 


DEFENSE    OF    THE    REALM 


143 


results  therefrom,  Init  also  of  direct  interference  with  the  success 
of  the  war  by  the  loss  of  time  in  munitions  and  other  factories, 
and  by  the  use  of  cereals  needed  for  food  supplies.  .And  it  has 
been  urged  that  the  situation  demands  the  complete  suppression 
<if  the  licjuor  traffic  for  the  period  of  the  war.  ' 

On  Julv  1'  11)17,  there  was  published  a  memorandum  b\-  the 
Central  Conti  ,i  Board  iti  favor  of  government  purchase  ni  the 
liquor  trad",  which  had  been  in  the  hand<  of  the  government  for 
six  montiis.  This  memorandum  stated  that  the  limits  of  effec- 
tive action  along  the  lines  in  use  had  been  almost  reached,  and 
that  "  the  successful  prosecution  of  the  war  was  still  hcin_  lam- 
pered  by  e.xcessive  consumption  of  intoxicating  liquors."  The 
results  of  the  experiments  in  direct  control  at  Carlisle  and  else- 
where, led  the  board  to  think  that  it  "  offered  the  most  rapidly 
effective  and  the  best  permanent  solution  of  the  problem."  On 
financial  grounds  the  plan  of  outright  purcha.se  was  jjreferred  to 
any  scheme  for  assuming  control  merely  for  the  period  of  the 
war.  - 

Committees,  for  England  and  Wale,-,  Scotland  and  Ireland,  on 
the  financial  aspects  of  direct  purchase  and  control  reported  in 
the  spring  of  iniS. 


Home  Office  Committees 

The  official  press  bureau,  established  early  in  August.  1914. 
hv  the  War  Office  and  the  Admiralty,  was  announced  in  Septem- 
l)er  as  having  been  placed  under  the  supervision  of  the  Home 
Secretarv.  Mr.  F.  E.  Smith,  the  civilian  director,  continued  in 
this  position  until  October,  when  tliis  place  was  taken  by  another 
civilian,  the  Solicitor  General. 

.\  committee  on  Retail  Trade  and  Enlistment  was  set  up  in 
the  Home  Office  by  the  first  part  of  11U5. 

On  P'ebruary  •J-"i,  I!*!."),  a  committee  was  organized  "  to  inquire 
into  the  coal  mining  industry  with  a  view  to  pronKJtiiig  such  or- 

'  Sec  The  Indcfcndn't.  March  2.  I^IH. 

•  The  liiiu-s  llislors  of  tht  IC.i,,  .m,  ch.  T9J.  p.  434. 


.1. 

f    • 


144 


BRITISFI    WAR    ADMINISTRATION 


ganization  of  work  and  such  cooperation  Iwtween  employers  and 
workmen  as.  having  regard  to  the  large  number  of  miners  who 
are  enl.stmg  for  naval  and  military  service,  will  secure  the  nec- 
essary production  of  coal  during  the  war."  Three  report^  were 
published  by  this  committee. 

A  scheme  of  colliery  recruiting  courts  was  established  bv  the 
Home  Secretary,  with  a  Central  Courl.  as  an  advisory  bodv'con- 
.sistmg  of  the  Chief  Inspector  of  Mines,  the  Coal  Mining  Organi- 
zation Committee  and  a  representative  of  the  War  Office.  ' 

On  the  auoption  of  a  more  restrictive  policy  in  dealing  with 
aliens,  in  May.  1!)],^  an  Aliens  Advisory  Committee  was  pro- 
vided, to  deal  with  the  appeals  of  persons  against  whom  orders 
ot  restriction  or  internment  may  be  made  under  the  Defense  of 
the  Realm  Regulations.  This  committee  included  two  justices  of 
the  High  Court,  with  other  members. 

There  were  also  organized  an  Aliens  (Destitute)  Committee 
an  Aliens  Restriction  Committee,  an  Aliens  Restriction  Regu- 
lations Committee,  and  an  I-nemy  Aliens  (Internment  and  Re- 
patriation) Advisory  Committee.  A  Civilian  Internment  Com- 
mittee was  provided  to  deal  with  civilian  internment  camps  and 
the  employment  of  aliens.  ' 

On  October  10.  unr,,  a  committee  was  established  at  the  Home 
CJffice  to  consider  the  conditions  of  clerical  and  commercial  em- 
ployment, with  a  view  to  advising  what  steps  should  be  taken, 
by  the  employment  of  women  or  otherwise,  to  replace  men  taken 
for  the  army.  ' 

A  War  Charities  Committee  \\as  appointed  by  the  Home  Sec- 
retary, on  April  V2,  1!.1(!;  and  following  the  r-Mwt  of  this  com- 
mittee the  Charities  Registrati,..i  Act  was  passed  * 

On  March  -JS,  I'.K!.  a  Committee  <.n  Conscientious  Objectors 
was  established,  to  which  a  tribunal  might  refer  for  advice  as  to 
what  service  of  national  importance  an  applicant  for  exemption 

'  l.iheral  Vcar  Hook.  1917,  p.  150 
I  Ihid..  pp.  148-150. 

i  '/'.'<'■■  I';  jSO;  I'ailmmnitary  Papers.  1915,  Cd   8110 
p.  164."'  '"■        "*■  ''^'^'  ''■  '"•  ■^'"'  ''"''"''•'  Qxo'tcrly,  No.  8  (1916). 


Ih 


wmmmm^mi^'^mi^i^wm- 


DEFENSE    OF    THE    REALM 


145 


from  military  service  on  the  ground  of  conscientious  objection 
should  undertake. 

A  Summer  Time  Committee  was  established  at  the  Home 
Office,  on  September  2!>,  1!)H>,  to  inquire  into  the  social  and 
economic  results  of  the  Summer  Time  Act,  I'.llfi,  and  to  con- 
sider ( 1 )  whether  it  was  advisable  that  summer  time  lie  reintro- 
duced in  1017,  and  in  subsequent  years;  and,  if  so,  (2)  whether 
any  modifications  in  the  arranj^ements  were  required.  This  com- 
mittee consisted  of  ten  members  (one  woman),  with  Mr.  J.  W. 
Wilson.  M.P.,  chairman,  and  two  secretaries.  ' 

Other  Home  Office  committees  include  the  following :  Cocaine 
and  Opium  Permits  Committee,  Fire  Brigade  Coordination  Com- 
mittee, Juvenile  Organizations  Committee,  Passenger  Traffic 
with  Holland. 

The  Home  Office  was  also  represented  on  the  Defense  of  the 
Realm  Regulations  Amendment  Committee,  the  Women's  War 
Employment  Advisory  Committee,  the  Prisoners  of  War  and 
other  interdepartmental  committees. 

•  Liberal  Year  Book,  1917,  p.  161. 


I 


CHAPTER  VIII 


3- 

m 


War  Relief,  Pensions   and  Prisoners 

A  host  of  committees  and  other  agencies  have  been  organized 
for  dealing  with  various  social  problems  arising  out  of  the  war, 
which  are  interrelated  at  various  points  in  their  objects  and  to 
some  extent  in  their  operations.  These  numerous  agencies  have, 
moreover,  been  under  the  supervision  of  several  ministries.' 
Pensions  and  other  allowances  to  those  in  military  and  naval 
service  were  administered  under  the  War  Office  and  the  Admi- 
ralty, until  the  creation  of  the  Ministry  of  Pensions.  War  chari- 
ties and  other  relief  agencies  were  connected  with  the  Local  Gov- 
ernment Board  and  the  Home  Office;  and  many  of  these  agencies 
also  dealt  with  pha.ses  of  the  employment  problem. 

In  addition  to  the  government  and  local  official  committees, 
much  was  done  by  a  great  numljer  of  private  voluntary  organi- 
zations—both those  of  old  standing  and  many  new  societies  or- 
ganized for  the  present  war  problems.  One  list  of  such  organiza- 
tions included  147  societies;'  and  this  was  by  no  means  com- 
plete. 


It: 


I 


W.\R  Charities 

The  organization  of  charitable  relief  agencies  was  looked  after 
to  a  considerable  extent  by  the  Local  Government  Board.  In 
some  resfiects  the  war  reduced  the  normal  work  of  this  depart- 
ment, but  the  relief  activities  more  than  counterbalanced  this, 
and  emergency  services  were  improvised  in  connection  with  these 
functions. 

On  August  4,  1!»14.  a  Central  (lovernment  Committee  on  the 
Prevention  and  Relief  .if  Distress  was  appointed  by  the  Prime 
Minister,  with  the  president  of  the  Local  Government   Board 

.  '}^^l<^"  J^or^M  ^rnith     li;,r  Pistrrss  and  War  Help.     A  short  catalogue 
of  thf  leacliiiR  War  Help  Societie'i.     Murray.  1915. 

140 


^iSJi* 


ri'iSj4. 


WAR    RELIEF,    PENSIONS    AND    PRISONERS 


14: 


(Herbert  Samuel)  as  chairman,  "to  advise  on  measures  neces- 
sary to  deal  with  distress  arising  in  ccniequence  of  the  war,  and 
to  initiate,  advise  and  coordinate  action  taken  with  a  view  to  the 
prevention  and  relief  of  such  distress."  This  committee  con- 
sisted of  ten  memljers,  including  six  members  of  the  House  of 
Commons  and  one  woman.  A  special  department  was  formed  at 
the  Local  Government  Board  to  act  under  this  committee. 

In  connection  with  this  central  committee,  a  series  of  sub- 
committees was  also  established:  on  London  (in  .\u>;ust). 
Women's  Employment  (August  20),  Professional  Classes  (Oc- 
tober -.'l).  Urban  Hv/using,  Agricultural  Districts,  Intelligence 
Advisory  Committee,  and  London  Intelligence  Committee.  The 
four  last  named  subcommittees  appear  to  have  been  discontinued. 

Circulars  were  issued  by  the  Local  Government  Board  to  local 
authorities  callii.g  attention  to  their  powers  to  aid  in  relief  work, 
and  inviting  them  to  form  local  committees  (in  every  county, 
borough  and  urban  district  of  over  20,000  population),  to  include 
representatives  of  the  municipal  authorities,  boanls  of  poor  law 
guardians,  trades  unions  and  .  philanthropic  organizations — in 
particular  the  Soldiers'  and  Sailors'  Families  Associations. ' 
Memoranda  were  issued  to  the  local  committees;  and,  in  the  first 
week  of  September,  the  central  committee  announced  the  employ- 
ment of  inspectors,  selected  from  the  Local  Government  Board, 
the  Board  of  F.ducation  and  the  National  Health  Insurance  Com- 
mission, to  act  as  intermediaries  with  the  local  committee.  .A 
newly  formed  Intelligence  Department  of  the  Local  Government 
Board  was  strengthened  and  expanded,  and  acted  as  a  central 
bureau  of  information  on  the  state  .if  trade  and  industrial  con- 
ditions in  the  different  districts. 

The  problem  of  unemployment  among  men  did  not  prove  seri- 
ous. The  raising  of  the  new  armies  and  the  demands  for  sup- 
plies of  all  kinds  for  the  government  soon  offset  the  disloca- 
tion of  trade.  But  ''or  a  time  there  was  acute  distress  among 
women,  especially  those  employed  in  the  luxury  trades,  and  those 

'The  Potilical  Quarterly,  i,  189  (1915);  l'arHan:cntar\  I'afcrs,  1914.  Cd. 
760J,  7763. 


> 


148 


BRITISH    WAR    ADMINISTRATION 


lif 


in  clerical  service  thrown  out  of  work  by  the  closing  of  the  Stock 
Exchange.  '  The  extent  of  these  conditions  is  indicated  by  the 
formation  of  Women's  Employment  committees— the  central 
committee  in  August,  one  f..r  Ulster  in  October,  and  a  central 
Irish  committee  for  the  other  provinces  in  Xovember.  - 

The  Central  Committee  on  Women's  Employment  marked  a 
new  departure  in  the  constitution  of  government  committees 
It  consisted  of  fourteen  women,  with  Lady  Crewe  as  chairman. 
"  to  consider  and  fiom  time  to  time  report  upon  schemes  for  the 
provision  of  work  for  women  and  girls  unemployed  on  account 
of  the  war."  It  acteil  in  close  connection  with  the  Central  Gov- 
ernment Committee  on  the  Prevention  and  Relief  of  Distress- 
aiming  both  at  securing  immediate  relief  and  also  at  regular  em- 
pl.n  ment  under  economic  conditions.  ^  Graduallv  the  situation 
was  improved,  partly  by  relief  agencies,  but  mostly  bv  the  in- 
creasing employment  of  women  in  connection  with  the  produc- 
tion of  army  supplies  for  the  government. 

One  of  the  important  factors  in  the  relief  of  distress  was 
the  National  Relief  I'und.  which  was  opened  on  August  ().  li)14. 
and  by  Xovember.  lOl,-,.  amounted  to  £.-).(!  1. -..005.  This  was 
administered  by  an  executive  committee  appointed  by  the  Prince 
ot  Wales.  The  gueen's  Work  for  Women  Fund  was  a  useful 
au.xibary.  In  the  relief  of  the  civilian  population,  the  National 
Relief  Fund  Committee  acted  .,nly  on  the  recommendation  of 
the  Central  (Jovernment  Committee.  In  assisting  unemployed 
women,  the  Central  Committee  on  Women's  Employment  de- 
vised schemes  for  somen's  work,  which  were  approved  bv  the 
Central  (.overnment  Committee:  and  the  National  Fund  Com- 
mittee financed  them  out  of  money  collected  through  the  Queen's 
lutid.  * 

A  large  proportion  of  the  National  Relief  Fund  was  paid  ,,ut 
lor  the  allowances  <lue  by  the  government  to  soldiers'  and  sailors' 
dependents.     The  enormous  increase  in  the  number  of  .-,ucli  al- 

[Viuirti-rly  A'.-rrW.'.  vnl.  Z2i.  p.  112  (1916) 
[I  ihcHil  y,\,r  Honk    lyir.  |).  16-4. 

H'id. 

'  I  he  I'oUfuai  Quarterly.  ,.  189;  ParlHimcntary  Vafas.  1915,  td   775o. 


Ite. 


WAR    RELIEF,    PENSIONS    AND    PRISONERS 


149 


i 
I 


lowances  had  overwhelmed  the  pay  office  of  the  army;  and  the 
National  Relief  Fund  was  used  to  meet  the  emergency. ' 

The  pressure  on  these  funds  raised  by  private  subscription  was, 
after  a  time,  relieved  by  the  better  organization  and  the  increase 
of  the  government  allowances  to  the  families  of  men  in  active 
service,  and  by  government  grants  to  local  authorities  for  works 
to  furnish  employment. 

The  report  on  the  administration  of  the  National  Relief  Fund 
for  the  si.x  months  ended  September  .'50,  1017,  showed  receipts  of 
■£6,240.000,  and  expenditures  of  £2,.sr).'),000  on  naval  and  mili- 
tary distress,  £002,000  on  civil  distress,  and  £4,000  on  adminis- 
tration. 

Something,  but  very  little,  was  done  by  the  subcommittee  on 
professional  clas.ses,  by  grants  to  various  organizations;  but  the 
mi  St  effective  work  for  these  classes  (such  as  artists,  who  suf- 
fered perhaps  more  than  any  other  class)  was  by  private  organi- 
zations, notably  the  Professbnal  Classes  War  Relief  Fund  Coun- 
cil, of  which  Major  Leonard  Darwin  has  been  the  chairman,  and 
the  Professional  Women's  Patriotic  Service  Fund. 

Among  the  f)ther  voluntary  organizations  specirl  mention  may 
be  made  of  the  Young  Men's  Christian  Association,  especially  in 
providing  canteens  in  the  training  camps  and  munitions  areas. 


Belgian  Refugees 

An  important  branch  of  relief  work,  for  which  special  agencies 
were  organized,  was  that  of  looking  after  refugees  from  Belgium, 
and  later  those  from  other  countries.  At  first  this  problem  was 
dealt  with  by  a  voluntary  War  Refugees  Committee;  but  later 
the  Local  Covernment  Board  took  over  the  reception  of  refugees 
and  arranged  for  their  registiation  and  temporary  accommoda- 
tion. Arrangements  were  made  for  a  regular  series  of  passenger 
lK)ats  from  Antwerp  and  later  from  Ostend :  and  agents  of  the 
Local  Government  Board  were  stationed  at  Ostend  and  Folke- 
stone.     \  l.irge  numiier  of  buildings  were  used  for  temporary 

'  Quarlcriy  A.-mVu,  vuI.  iJ.'i.  p.  117. 


]r>o 


BRITISH    WAR    ADMINISTRATION 


accommodations;  and  as  the  numl)er.s  of  refugees  increased,  the 
local  authorities,  in  London  and  elsewhere,  were  invited  to  assist 
and  to  form  local  committees.  The  Registrar  General  compiled 
a  central  register  of  refugees.  ' 

In  October  a  fJelgian  Refugees  Committee  for  Ireland  was 
tormed.  lor  organizing  hospitality  and  collecting  funds  for  their 
maintenance.  ^  In  the  same  month  a  departmental  committee  was 
appointed  by  the  president  of  the  Local  Government  Board  con- 
sisting of  si.xteen  members,  with  Sir  Ernest  Hatch  as  chairman 
to  consider  and  report  on  questions  arising  in  connection  with  the 
reception  and  employment  of  the  Belgian  refugees.  The  Belgian 
Government  also  appointed  an  official  committee  to  look  after 
the  interests  of  refugees,  which  acted  as  a  consultative  bodv 

The  departmental  committee  held  a  series  of  meetings'  from 
-November  2  to  December  7.  hearing  72  witnesses,  including  gov- 
ernment officials,  employers,  and  representatives  of  labor  unions 
and  of  local  and  central  relief  committees.  The  report  of  this 
committee,  issued  at  the  end  of  December,  showed  that  about  a 
million  refugees  had  left  Belgium,  about  half  of  whom  had  gone 
to  Holland,  and  about  100.000  had  come  to  England  up  to  that 
time,  with  more  to  come.  '' 

In  accordance  with  the  report  of  this  committee  a  Belgian 
Refugees  Commission  was  established  in  lanuarv.  VJir,  consist- 
>ng  of  eight  members,  with  Sir  Ernest  Hatch  as  chairman  to 
put  into  execution  the  recommendations  „f  the  committee  'for 
provKlm^  occupations  for  Belgian  refugees.  This  commission 
continued  its  work  until  July.  l!»l,-,.  ■* 

Later  a  Belgian  Repatriation  Committee  was  appointed  the 
>ecretary  .,f  which  was  Mr.  H.  .X.  Leggett.  who  had  .crved  in 
the  same  capacity  for  the  Belgian  Refugees  Commission. 

I  arhamniuiry  ;\,f>crs.  1915-  CcJ    7750    777Q 
•  /-i^.'-a;  }\ar  Book.  1917.  ,,.149  '     "^■ 


X;r.C-|  ^ 


WAR    RELIEF,    PE.VSIONS    AND    PRISONERS 


151 


Local  AmioRiTiES 

Available  accommodations  in  local  institutions  tor  the  poor 
were  used  in  a  variety  of  ways :  by  the  military  authorities  tor 
billeting  troops  and  for  the  treatment  of  wounded  soldiers :  for 
temporary  relief  of  Belgian  refugees;  for  housing  alien  enemies 
axid  the  wives  and  families  of  interned  aliens.  Kepayment  was 
made  by  the  Exchequer  to  the  1.  .  al  boards  of  poor  law  guardians 
for  part  or  the  whole  of  the  increased  expense  due  to  these 
services. 

The  public  health  division  of  the  Local  dovernment  Board,  in 
consultation  with  the  War  Office,  organized  numerous  measures 
for  securing  cooperation  between  the  local  civil  and  militarv  au- 
thorities in  regard  to  sanitary  matters,  such  as  the  selection  of 
camp  sites,  water  supply,  drainage,  hospital  facilities  for  infec- 
tious diseases  and  food  inspection.  The  Iward's  government 
lymph  establishment  supplied  the  army  and  navy  with  a  half 
million  tubes  of  vaccine  lymph  up  to  December.  liiU.  -Medical 
inspectors  assisted  in  the  medical  examinatitjn  of  refugees  at 
Folkestone. 

Distribution  of  food  supplies  from  the  colonies  for  the  relief 
of  distress,  the  supply  of  coal  in  London,  and  clothing,  tovs  and 
food  for  children,  sent  from  the  United  States  by  the  Christmas 
ship  Jason,  was  also  looked  after  by  the  Local  ( ".overnment  Bnard. 
There  was  not  much  need  for  relief  of  British  itizcns;  but  some 
of  these  supplies  were  used  for  Belgian  refugees,  and  a  good  deal 
was  offered  to  the  War  Office  and  the  Commission  for  Relief  in 
Belgium.  ' 

At  the  outbreak  of  the  war,  the  local  authorities  were  a.sked 
to  [)rovide  employment.  Later  they  were  asked  to  dispense  with 
labor  and  restrict  their  activities.  The  restrictions  on  new  capi- 
tal issues  applied  to  the  local  authorities,  and  caused  tile  >us- 
pension  of  iiniwovement  w.,rks.  At  the  same  time  there  was  a 
•serious  financial  strain  ..n  the  local  authorities,  ■  m  account  of  al- 

Cl'  ^■/J,';, /'"'""''''  C'«ar(.T/.v,  .\o.  5,  pp    170-17.';   /■a.luunn.n.ry  I'apcrs.  l'»14, 


152 


BRITISH    WAR    ADMINISTRATION 


lowances  paid  to  employes  in  military  service  and  to  their  depend- 
ents, increased  wages  and  the  rise  in  the  prices  of  materials,  and 
the  service  of  untrained  substitutes  'or  those  with  experience.  ' 

As  the  war  continued  the  use  of  local  public  buildings  for  pur- 
poses connected  with  the  war  increased.  School  buildings  were 
occupied  by  the  military  authorities  for  troops  and  hospitals.  The 
employment  of  children  of  school  age  was  extended. 

The  Local  Government  (Emergency  Provisions)  Act  of  191G 
regularized  the  action  of  local  authorities  in  regard  to  leaves  of 
absence,  payment  of  part  salaries  and  allowances  to  dependents, 
the  inclusion  of  service  with  the  colors  on  pension  schemes  for 
officials  and  employes  serving  in  the  army  and  navy.  This  act 
also  legalized  the  use  of  local  government  buildings  for  military 
purposes,  and  continued  the  provisions  of  the  act  of  1915  for 
postponing  local  elections.  - 

War  Losses  ' 

Several  committees  have  been  appointed  to  deal  with  the  relief 
of  those  who  have  suffered  direct  losses  as  the  result  of  hostile 
operations  and  measures  for  the  defense  of  the  realm. 

The  F.ast  Coast  Raid  Committee  was  established  in  January, 
l!tl,'>.  to  investigate  the  damage  to  persons  and  property  sustained 
in  the  bombardment  of  the  Ilartlepools,  Scarborough  and  Whitby, 
with  a  view  to  affording  relief  from  imperial  funds  to  the  per- 
sons affected. 

In  April,  11)1.5,  a  committee  was  appointed, 

to  consider  any  case.";  of  hardship  that  may  be  brought  before  them  on  behalf 
of  masters,  ofrice,  s  and  seamen,  including  pilots  and  apprentices,  of  British 
merchant  and  fishing  vessels,  who  have  lost  personal  effects  through  hostile 
operations  at  sea.  without  being  in  a  position  to  recover  compensation  or  to 
obtain  ackijuate  relief  in  respect  to  such  losses  from  other  sources,  and  to 
g.^■n  such  sums  as  they  may  think  just  in  such  cases. 

On  March  ;{],  a  Royal  Commission  on  Defense  of  the  Realm 
Lo>-cs  was  appointed, 

'  The  Political  Quarlcrlw  No.  6,  pp.  179-188. 

'Ibid..  No.  8  (1916).  pp.  161-162. 

'Liberal  Year  Hook.  1917,  pp    143-144,  151,  lS2.  155,  IW,  161. 


lii! 


111. ,  m..> 


mm-m, 


WAR    RELIEF.    PENSlnxs   AND    PRISONERS 


153 


to  inquire  into  and  determine,  and  to  report  what  sums  ( in  cases  not  other- 
wise provided  for)  ought  in  reason  and  fairness  to  be  paid  out  of  pubhc 
funds  to  apphcants  who  (not  being  subjects  of  an  enemy  state)  are  resident 
or  carrying  on  business  in  the  United  Kingdom,  in  respect  of  direct  and 
substantial  loss  incurred  ?nd  damage  sustained  by  them  liy  reason  of  inter- 
ference with  their  property  or  business  in  the  United  Kingdom,  througli  the 
exercise  by  the  Crown  of  its  rights  and  duties  in  the  defense  of  the  realm. 

The  commissioners  appointeil  were:  Mr.  H.  li.  Duke,  chair- 
man. Sir  J.  T.  Woodhouse.  and  Sir  M.  G.  Wa'lace.  In  I'.'IT  Sir 
J.  T.  Woodhouse  was  chairman,  with  Sir  M.  G.  Wallace  and  Mr. 
E.  Shortt,  M.F.,  as  meml)ers.  ' 

The  first  report  of  this  commission  was  made  under  date  of 
September  II*,  lOlt).  The  commissioners  had  held  l.'io  sittings 
in  London.  1l'  in  Edinburgh  and  1  in  Dublin;  and  up  to  the  end 
of  August  iiail  dealt  with  1,0!)4  a])plications.  On  claims  for 
£05:2,771),  lump  sum  payments  had  been  awarded  amounting  to 
£:i70.!t(i5;  and  on  claims  for  £.'i.'i.").ti'.)4  a  yc.ir.  payments  at  the 
rate  of  £l!)l,.'s57  a  year  had  been  awarded.  I'ases  of  loss  arising 
from  the  enforcement  of  any  rule  of  general  application  had 
been  ruled  out.  Where  agricultural  land  had  been  taken,  the 
cominissioners  had  ruled  against  claims  based  on  estimates  of 
future  crops,  and  assessed  losses  on  the  basis  of  crops  in  being 
and  the  occupation  value  of  tlie  land.  The  commissioners  sug- 
gested the  expediency  of  acquiring  the  entire  interest  in  lands 
where  buildings  or  works  of  a  more  or  less  permanent  char.icter 
have  been  constructed. 

In  August,  101.">,  another  Ko^al  Commission  was  nrgaiiized 
on  Compensation  for  War  Disturbances, 


to  report  what  sums  (in  cases  not  oilierwisc  provided  for)  ought  in  re.ison 
and  fairmss  to  be  paid  out  of  puMic  fniiiN  to  applicants  uho  mot  txing  sub- 
jects of  an  encMiy  state  I  are  rcsidci;!  or  c,irr>Mig  on  bu-iiu'ss  v.)  the  I  ;iltcd 
Isingdoni.  in  respect  of  direct  and  substantial  loss  incurred  by  tlnni  by  reason 
of  interference  with  their  property  or  business  in  the  L'nitcd  Kingdom  through 
the  exercise  by  the  prescrilied  govirnnu-  t  anth"rit\  if  its  iiowcrs  undir  the 
I)efen^e  of  the  r-iealm  ( .Xmendnuiit  i  (  .\o,  .i  I  Act.  Ivl5 — the  Liquor  Control 
.\ct. 

'  .Second  Report  Hefense  of  the  Realm  Losses  Commission,  Partiamcntary 
rap.rs.  1917.  Cd.  «751. 


154 


BRITISH    WAR    ADMINISTRATION 


Committees  were  also  appoiiitetl  on  Victims  of  tlic  lri>I\  Re- 
bellion ami  mi  IVoiKrty  Losses  in  Ireland. 


Home  Office  Committees 

In  addition  to  the  committees  previously  noted,  in  some  of 
which  the  Home  Office  was  represented,  several  other  committees 
were  organized  more  definitely  connected  with  this  department  of 
the  government  for  problem    of  relief  and  emiiloyment. 

On  Octol)er  K!,  liu:..  a  committee  was  established  at  the  Home 
Oltice  to  consiiler  the  conditions  of  clerical  and  commercial  em- 
ploy nient.  with  a  view  to  advising  what  steps  should  lie  taken,  by 
the  employment  of  women  or  otherwise,  to  replace  men  taken  for 
the  army.  I'his  committee  consisted  of  thirteen  mcnil>ers  ( two 
oi  wh.m  were  women)  and  a  secretary.  Its  first  report  was 
made  uiuler  date  of  Xovember  !!,  1!>1.">.  ' 

On  March  l>.  lit  Id.  another  committee  was  formed,  to  advise 
the  Board  of  Traile  and  the  Home  Office  on  questions  arising 
out  of  the  measures  taken  by  the  departments  to  give  practical 
etTect  to  the  jxilicy  of  the  government  of  extending  the  employ- 
ment of  women  in  industrial  occupations,  anil  to  watch  and  report 
on  the  progress  made  in  the  e.Mension  of  the  employment  of 
women.  This  committee  also  consisted  of  thirteen  members,  in- 
cluding two  women.  Mr.  C.  Harmsworth.  .M.['..  the  chairman, 
and  one  other  member  had  been  members  of  the  previous  Clerical 
an.;  Connr.ircial  Ilmploynicnts  Committee;  and  Mr.  M.  H.  Whit- 
te!egi:e.  who  had  been  secretary  of  the  earlier  committee,  was 
one  ■  !  the  two  >ccret;iric<  of  this  committee.  -' 

A  War  Chiiriiic^  I  Tiiniittee  was  appointed  by  the  Home  .^ec- 
retar.  -n  April  li'.  luiii,  ••  t,,  consider  representations  which 
luve  ;:ceii  made  m  re>pect  to  the  promotion  and  management  of 
charna!:!e  iund>  f^r  objects  connected  with  the  war.  and  to  ad- 
vi-^e  whether  any  measures  sh.mld  be  taktii  u,  secure  the  better 
cuntr.  1    .r    -uperviM-ii   <,i    such    iuiul>    in    the   pubbc   interest." 

=  /';,''.,"■   •■""';■'"''  u'X~-  '','■';"■    ^'<"-"^»>'->it<iry  fafcrs.   1915,   OI.  8II1I 
l.iocrai    I  car  hook.  Ivl7.  p    \ij^. 


WAR    RELIEF,    PENSIONS    AND    TRISONERS 


155 


This  committee  cotisi-ted  oi  eight  meniliers  ( inchiding  one 
womai- ),  with  Mr.  I.  \V.  Wilson.  M.P..  as  chairman.  It  recom- 
inended  that  it  he  made  illegal  to  appeal  to  the  i)ul)lic  fur  any  war 
charity  unless  the  houy  asking  the  ajjpeal  is  registeretl:  and  that 
the  Home  Secretary  l)e  empowered  to  make  the  necessary  regu- 
lations and  con(liti(jiis.  ' 

Following  this  re[i'irt  the  Charities  Registration  Act  was 
passed.  This  required  registration  of  war  charities  by  municipal 
authorities — the  councils  of  counties,  horoughs.  and  urljan  dis- 
tricts :  and  authorized  the  charity  commissioners  to  make  regula- 
tions providing  the  form-^  for  applications  and  registers  and  the 
fees,  and  providing  for  the  inspection  of  registers.  The  report  of 
the  charity  commissioners  for  the  year  liUn  showed  that  in  the 
first  four  months  in  which  the  act  had  been  in  operation  -l.lTlt 
charitie-  were  on  the  combined  register.  1,000  had  been  exempted, 
and  l^  had  been  refused  registration. ' 


Prisoners  of  War  ' 

For  the  assistance  of  British  prisoners  of  war  held  by  the  en- 
emy, and  the  cart  ^nd  emplo\ment  of  enemy  prisoners,  a  numljer 
of  committees  and  other  agencies  were  organized. 

In  order  to  relieve  the  immediate  necessities  of  British  pris- 
oners, several  .(jluntary  prisoners  of  war  societies  were  formed; 
and  a  t'entral  Fristjners  of  War  Help  Committee  was  estab- 
lished in  London,  U)  act  as  headiiuarters  for  information,  to  co- 
ordinate the  work  of  ditferent  organizations,  and  to  prevent  over- 
lapping. This  central  committee  wcjrked  in  close  connection  with 
the  Swiss  Red  Cro-s. 

In  September,  lt>l.").  the  Home  .Secretary  (Sir  John  Simon) 
appointed  a  committee  to  collect,  verify  ami  record  information 
a-  to  the  treatment  of  British  subjects,  nnlitary  and  civil,  who 


Ibid.,  p.  162.      /!i-  t'.'litical  Quarlcrlx.  Xo.  8  (1916),  |.,  164. 

=  6  an.'  7  Gtw  .  c.  4J,  .\uguit  J3.  1916,  l'arl\amcntar\  I'apns.  1917,  Cd. 
8521, 

'/.i6,r.'/  V,  I'  i:..,<i .  1917,  p.  158;  The  Times  Ilislorx  of  ihv  liar,  .\ii, 
cli.  187,  H>   -  '•»  -:i- 


156 


BRITISFI    WAR    ADMINISTRATION 


had  l,een  made  prisoners  of  war.  Mr.  Justice  Younger  was 
chairman  i.f  this  committee,  with  representatives  from  the  War 
Office,  Home  Office  and  Foreign  Office.  This  committee  .:  ' 
vahiable  work,  pnd  in  a  few  cases  -eports  were  published  on  c< 
ditions  in  some  of  the  German  piison  camps  (as  at  Wittenberg 
and  Gardeiegen) :  but  there  was  some  criticism  of  the  faiUire  to 
make  public  the  facts  as  to  the  treatment  of  British  prisoners. 

Better  treatment  for  some  prisoners  was  secured  bv  an  agree- 
ment, in  .May,  1!>1.;,  that  British  and  German  wounded  and  in- 
valided prisoners  should  be  trarsferrcd  to  Switzerland. 

W  hilc  valuable  service  had  I)een  done,  it  became  evident  that 
turther  organization  was  necessarv  The  central  committee  had 
no  power  to  compel  obedience  Iv.  voluntary  agencies;  there  was 
a  vast  amount  of  i>verlapping :  and  while  some  pri.soners  received 
more  than  they  could  use.  oilers  received  little  and  some  none. 
Many  parcels  were  badly  packed  or  wronglv  addressed,  or  had 
perishable  goods;  while  there  were  also  attempts  to  send  for- 
bidden articles. 

In  September.  191  fi,  it  was  arranged  that  the  joint  war  com- 
mittee ot  the  British  Red  Cross  Society  and  t'v  Order  of  St. 
John  should  take  over  all  <|uestions  relating  to  the  welfare  of 
British  prisoners.  .A  new  Central  Prisoneis  of  War  Committee 
was  appointed,  with  Sir  J.  Starr  Jameson  as  J-.irman.  and  .Mr. 
P.  D.  Agnew  as  managing  director,  lo  centralize  and  coordinate 
the  various  measures  taken  for  the  relief  of  prisoners  of  war. 
I  his  committee  undertook  to  furnish  all  British  and  Indian  pris- 
oners of  war.  whether  military  or  civil,  with  a  .supplv  of  fowl 
and  clothing.  The  several  voluntary  committees  and  associations 
came  to  some  extent  under  its  direction,  as  their  parcels  could 
not  l)e  sent  without  its  approval,  except  to  officers. 

A  joint  committee  appointed  to  inquire  into  the  organization 
and  methods  of  the  Central  Prisoners  of  War  Committee  re- 
ported, in  11"  17.  that  there  had  been  amftkts  between  regimental 
and  local  relief  associations,  and  delay  in  organizing  the  central 
office,  and  made  some  criticism  of  the  regulations.  ' 
'  Parliamcntiirx  rupi-is.  1917.  Cd,  8615. 


->  //^SSs*  t-* 


WAR    RELIKF,    PENSIONS    AND    PRISONERS 


157 


For  enemy  prisoners,  a  prisoners  of  -.var  departmert  was  or- 
ganized in  the  W  ar  Office ;  and  an  ititerdepartniental  committee 
was  established,  with  representatives  I'rcni  tlie  Home  Office.  War 
Office,  the  Admiralty  and  the  Foreign  Office.  l<  dea'  with  any 
questions  relating  to  prisoners  of  war  labor  ir  which  two  or  more 
of  the  departments  mif;ht  he  concerned.  In  Janiiaiy,  H'lT,  the 
Prisoners  of  War  Emplovmcnt  Committee  was  rtconstitute.l,  to 
consider  applications  for  the  employment  of  jirisoners  o(  wpr. 
com' atant  or  civilian.  Mr.  J.  F.  Hope,  M.l'.,  was  chr^irn  an  of 
♦'      -'^mmittee,  and  Mr.  G.  D.  Roseway,  secretary. 


Aid  to  Soldiers  and  Sailors* 

Mon  to  the  assistance  furnished  by  the  genera!  relief 
^.-ii-     ..on),  several  special  committees  were  formed  to  help 
'le-.  and  sailors.    In  11*15  a  committee  on  the  employment  of 
'1     (i.iL  '  soldiers  and  sailors  was  appointed  by  the  President  of 
ti  •,  Local  Government  Board.     In  Jul\   of  this  same  year,  th^- 
'■  ,,:  '  of  Agriculture  and  Fisheries  established  a    'epartmental 
c  !!••  .ittee  to  consider  and  report  what  steps  could  be  taken  to 
promote  the  settlement  and  cmpl  .yment  on  the  land  in  Fngland 
and  Wales  of  soldiers  and  sailors,  whether  disabled  rtr  other- 
wise, on  discharge  from  the  navy  or  the  army.    .\  committee  was 
also  appointed  on  the  employment  of  disabled  soldiers  antl  sailors 
on  British  railways. 

In  connection  with  the  new  Labor  Ministry,  established  at  the 
end  of  miti,  a  -eries  of  tratle  advisory  committees  were  or- 
ganized, to  provide  I'or  disabled  soldier^  ami  sailors.  Such  com- 
mittees were  provided  for  tailoring,  basket,  skip  and  hamper 
trade,  electricity  trade,  furniture  trade,  printing  and  kmdred 
trades,  boot  and  siioe  manufactnrc.  and  the  cinematograph  trade. 

-Ar.my  AM)  X.WY  1'ensk;ns 

.'\t  thf  'oeginning  of  the  war.  the  only  official  orgamzaiion  for 
the  administration  of  the  system  of  allowances  and  pensions  for 

'Liberal  Year  Book.  1917,  p  154:  f'arliamciilai-\  Paf.-rs.  \'i\-i-l6,  Cd. 
7915:  I'arliamattury  I'ntns.  1917.  Cd.  8741. 


158 


BRITISH    WAR   ADMINISTRATION 


the  army  was  the  commissioners  of  the  Roval  Hospital  for 
Soldiers  at  Chelsea.  Not  only  was  the  scale  o'f  these  payments 
then  HI  force  so  inadequate  as  to  require  additions  from'volun 
tary  sources,  but.  owing  to  the  wide  variation  in  the  circumstances 
of  the  officers  and  men  i  the  new  armies,  an  elaborate  examina- 
tion into  individual  cases  was  needed  to  adjust  the  total  to  the 
necessities  of  the  recipients.  This  work  of  investigation  and  sup- 
I)lementing  the  government  payments  was  in  the  hands  of  three 
voluntary  organizations :  the  Soldiers'  and  Sailors'  Families  As- 
sociation, the  Soldiers'  and  Sailors'  Help  Society,  and  the  Pa- 
triotic Fund  Corporation.  Ry  November  these  societies  had  been 
overwhelmed  by  the  growth  ..f  the  army:  and  there  was  also 
much  dissatisfaction  expressed  at  the  inequalities,  overlapping 
and  anomalies  arising  out  of  the  voluntary  system  of  supple- 
menting the  government  payments.  ' 

Under  these  conditions  a  Select  Committee  of  the  House  of 
C  ommons  was  appointed  to  consider  a  scheme  of  pensions  and 
grants  for  oOicers  and  men  in  the  military  and  naval  service. 
1  his  committee  was  composed  of  (1.  X.  jJarnes.  Austen  Chamber- 
lain. Davi.I  Lloyd  Ccorge.  Honar  Law.  Reginald  McKenna  and 
I.  I'.(:)'Connor.  representing  all  political  parties.     It  i)rescnted 
a  series   of   reports   during    ntl."..   recommending  an   increa.sed 
.scale  of  payments,  with  atlditional  allowances  dependent  on  the 
age  oi  widows  and  the  number  of  children,  and  also  proposed 
the  esiabbMum-nt  of  a  new  central  IkkIv.  representing  the  volun- 
tar>  socii'ties  and  the  government,  to  have  charge  of  a  fund  (to 
lie  tiinirl^  xoiunlary  )  for  supplementing  the  government  grants.  • 
Alter  a  soniewbat  -l.,rniy  curse  through   Parliament,  a  new 
Xaval  and  .Military  War  iViisi.MN  .\cf  was  parsed  on  Xovember 
I".   P»i.-..         Ihis  toliowed  the  iK.u    f.iniiliar  pr.iclice  of  setting 
up  another  .agency   fnr  ever>    undertaking,  by  establishing  as  a 
neu  central  autlioriiy  a  Staluf.Tv  C.nmiiitee  of  the  Roval  Patri- 
otic  I'uiid  Corporation,  consisting  „|    j;  mnubcrs— one  repre- 


'It'-'".  1''I5,  .\o>.  S.i, 
,=;  and  f)  (i,,.    \  ,  c. 


S3. 


WAR    RELIEF,    PENSIONS    AND    PRISONERS 


159 


sentative  of  each  of  seven  government  departments  (the  Treas- 
ury, Admirahy,  Army  Council,  National  Health  Insurance,  and 
the  Local  Government  Hoards  of  Ivngland  and  Wales,  Scotland, 
and  Ireland),  two  representatives  of  the  Soldiers'  and  Sailors" 
Families  Association,  six  representatives  of  the  Royal  Patriotic 
Fund  Corporation,  and  twelve  members  nominated  by  the  Crown. 
The  duties  of  this  committee  were  to  deal  with  doubtful  points  in 
the  allocation  of  government  pensions  and  grants ;  to  frame  reg- 
ulations for  supplementary  allowances  and  for  allowances  in 
cases  where  no  provision  was  made  from  public  funds;  and  to 
make  |)rovision  for  the  care  of  disabled  officers  and  men  after 
they  left  the  service,  including  provi.-<ion  for  their  health,  train- 
ing and  employment. 

The  act  also  provided  for  new  local  authorities — a  committee 
in  each  county,  county  I)orough,  and  borough  t)r  urban  tlistrict  of 
over  .">(»,(K)0  population,  with  subccjmmittees  (or  under  special 
circumstances  independent  local  committees)  for  smaller  areas. 
These  local  committees  were  to  be  appointed  under  schemes 
framed  by  the  local  councils  and  approved  by  the  Statutory  Cum- 
mittee.  The  chairman  should  be  a  member  of  the  local  council 
and  at  least  a  majority  of  the  members  should  be  appointed  by 
the  local  council,  with  representatives  of  labor,  w(jmcn,  a  sub- 
stantial representation  of  the  Soldiers'  and  Sailors'  I'amilies  As- 
sociation or  the  Soldiers'  and  Sailors'  Help  Society  or  «jther 
persons  engaged  in  war  relief  work.  The  local  committees  were 
to  make  inquiries,  to  act  as  local  .igent-^  for  the  Statutory  Com- 
mittee, and  to  solicit  and  receive  coiuributions  frinn  the  publii. 
for  the  ^uppleInentary  allowances. 

Following  the  precedent  of  the  Cnenii)loyed  Workmen  .\>  t  of 
1!Mi.">  and  the  National  Relief  l'"und.  this  me:i>urc  Liideaviriil  I'l 
bring  into  one  organization  pulilic  authorities  and  voluniaiv  or- 
ganizations, and  to  secure  funils,  in  addition  to  the  goviTnineiit 
■grani>,  liv  a;inealing  to  the  charitabk'  ])ulilic.  ( 'ritici--iii  wa-^  ni.uli- 
of  the  nnilti])licatii>ii  of  administrative  niachinerw  it  \\a-  argmd 
tliat  the  <  ^Id  Age  Pensions  coinmittces  of  the  loc.il  coniuIN  had 
performed    satisfactoril\    the   duty   of   dealing   with   deiuiuleiUs 


I»  i-l 


160 


BRITISH    WAR    ADMINISTRATION 


£      > 


Other  than  the  wives  and  clnldren  of  soldiers;  and  that  the  trans- 
fer of  this  work  risked  the  loss  of  administrative  experience 
good  wdl  and  the  bond  estal)hshed  between  tlie  local  councils 
and  the  nnlitary  av.-\  mval  authorities.  ' 

More  seriou>.  objection  was  made  to  the  financial  provisions 
Ihere  was  controversy  over  the  use  of  voluntarv  fun.ls  in  anv 
government  scheme:  and  demands  were  made  in  labor  circles 
that  the  g(  vernment  take  over  the  whole  burden.  The  question 
whether  ttie  Statutory  Committee  shcuild  consi.ler  -rants  from 
local  funds  delayed  the  operation  of  the  local  omimittees  ^ 

Xevertheless  much  s^ood  preliminarv  work  was  done  in  l-.H! 
a  government  Rrant  of  f  l.dOO.o.K,  was  made  as  a  nucleus  for  the 
supplementary  funds;  an.l  in  Octoln-r  it  was  announced  that  the 
nucleus  lund  would  be  increased  to  ftj.ooo.ood  an<l  that  the  -cale 
oi  re^MiIar  rates  would  be  increased.  Agreements  were  reached 
betwec.,  the  Statutory  Committee  a.,d  the  local  authorities 
Dra.t  re.irulations  for  grants  to  supplement  pensions  an.l  other 
re-ular  allowances  were  published  in  [ul\.  I!tl<;.  ' 

The  rep.,rt  of  ,he  Statutory  C-ommittee  on  war  pensions  ,nr 
the  year  IlM.;  .icscnbed  the  administrative  -.r^Mni.a.io,,  cs.ab- 
b>he.l  to  carry  .,ut  the  Pensions  Art  of  l!.l.-..  The  i'niKT  of 
Wales  was  chairman  of  the  committee  at  first;  but  after  the 
l'ens„,„s  .Ministry  was  creat..l.  .Mr.  ( ;.  X.  Dames,  .Minister  ,,f 
I 'ens..  „s,   l^-caiiK.  head  of  tlu-  commiltee.      hue   s„l,com,uittees 

^^ere   app,„nted:   nr^Mni.ation    ami    .:,a'neral    pur c- ;    bnaiKVs- 

pensions,  ,^.rams  and  allowances;  disablements,  u„b  sections  ,„,' 
laviiih,  and  on  traimn^^  aiul  employment;  an.l  ofilaTs'  pensions 
,i;rants  an.l  ail,,waiices.  !,,„!  cminitlees  were  or-anwe,!  „, 
everv  a,lm.nis,ratne  omniv  ,  Ijs)  a,„|  „„„„^,  i,,,^,,,,,.,^  ^  ,,.  ^  . 
•'"'1  .'Iso  „,  i;.  nmnin,,al  boroughs  an,!  urban  ,bs,ricts,  an.l  ,„  ,lie 
':'"'"  ^'''":^'  '"i^'l't-:«-l,Hal  committees,  h,  1:/  eases  pp,- 
v.Hon  was  nia.ie  i.,r  .listincl  .listrict  commut-es  ,„  e.niui.s.  1,,, 
subcommittees   were  rej^ularlv   provide.l   un.ler  the  county   .om- 

^  Til.-  r  ;,,'„,,/  i^iu;,n..  .,  \,,   ,^,  ,,    !,,., 
';/'.■    !•«:,■.,  Il,sl.r<     .1   II,,-  II  ,„.    ^    ,.,,     I,,,  ,,^ 


f 


WAR    RELIEF.    TENSIONS    AND    TRISfNERS 


ICl 


I 

I 


inittees.    The  luiiiilier  nf  memhers  on  these  local  committees  did 
not  usually  exceed  :;!.  ' 

But  the  number  of  cases  had  lieconie  iinmanageahle;  and  con- 
tusion was  caused  by  the  contlicting  views  <it  different  author- 
ities. There  were  !io  less  tiian  six  chief  authorities,  the  Ad- 
miraltv,  Greenwich  Hospital,  the  War  Office,  Chelsea  Hospital, 
the  new  Statutory  C'omniittee.  and  the  Civil  Liabilities  Commis- 
sion— established  in  May,  I'.Ui;,  l"  le.l  with  (|uestions  of  prin- 
ciple in  cases  of  doul)t  or  difticultx  ari-.ing  in  the  administration 
of  the  scheme  for  enalilinj;  soldier-^  to  meet  their  civil  liabilities.  ■ 
There  was  also  the  Central  .\rin\'  I'ensions  Issue  Office,  respon- 
sible for  making  the  actual  ])ayments.  Then-  was  more  or  less 
overlapping  and  considerable  dela\  and  friction;  and  while  the 
contlicting  authorities  were  composing  their  difference-,  the  un- 
fortunate soldier  or  his  dependents  received  iKithing.  The  most 
common  case  was  due  to  the  War  Office  -topping  reparation  al- 
lowances on  discharge,  instead  of  waiting  for  local  inquiry  and 
action. 

In  October,  r.Uti,  a  new  Cabinet  connnittee  was  appointed  to 
in(|uire  into  the  whole  ((uestion.  This  recoinmendeil  a  jiensions 
board,  with  a  responsible  minister  .it  its  heail,  tn  coordinate  the 
work  of  the  existing  !)odies.  It  was  explained  that  this  board 
would  deal  oiiiv  with  military  pensions,  not  including  -ervice 
pensions  nor  the  .\dmiralt\.  t.riticism  of  thi>  ])lati  led  to  it- 
amendment,  which  was  accepted  by  the  goveninicni.  and  the 
establishment  of  a  more  ceinrali/ed  -\-teni,  with  :i  Pension- 
Minister  and  no  board,  including  the  Admiralt)  except  as  to 
service  pension.-.  ' 

The  ;ii:t  for  establishing  a  Ministry  of  F'cnsion-  an  for  pur- 
])oses  ciiinected  therewith  became  law  neceinher  _'J.  r.ili'i.  ' 
This  provKled  for  a  .Minister  of  I'en-inn-.  appointed  b\  the  Ki;ig. 
in  order  to  unif\  the  admiiii.-tr.-ition  ,)f  pcn-ion-,  grants  ;uid  :il- 
lowance.s.      To  this  .\lini-ter  was  tran-ferrcd  the  ]iowei"s  and  uu- 

'  rorlhiHti-iitnrx  /'(if.-r.t.  ]'l\7.  I  il    ,S7.S(), 

=  I  ilh-nii   y,-<ii'  luu'k.  I'M/,  p.   Kill. 

•  III,-   I  iiiu's  llisl.-s   .■/  Ihr  (1,11-,  N,  d).  l(j,i.  pp    .U'»,  .i.-O. 

'  (i  and  7  Gc'i.  \  ,  c  ('S. 


Ifii? 


BRITISH     WAR    ADMINISTRATION 


K.  o,  ,  a)  the  Admiralty  w„h  respect  to  pensions  an,l  .rants  to 
the  naval  .orces.  other  than  service  ,^n.sions.  so  far  as  nv- ,  .e 
out  of  moneys  provided  ,n    PaHiament  and  not  provi     d  :x 

..he    ,  •  "''■'  "^'^^'-"^  "•  '''^'''•'■"'>-  P«^"«ions  and  grants 

r-im  ;      ''^.;'.^^='^'^^'>'-"-"t  with  respect  to  pensions  and 

.rant.  t„   i,e  nnl,tar^  ,„rces.  ..her  than  service  pensions     Oder 
'"Conned  were  anth„ri.ed  to  make  a<lapta,io„s  n  ,he  ennctr^en 
-i^n,^ to  such  powers  and  duties,  and  L  fix  .he  tnn:  :m^^^^^ 

Xavl:  rTm;:';'"'::  .1^  ^— \^"-"--  nnder  the 
■  >niuiv\    war  I  cMMons,  etc     Act    1'>1")    ui-rc  t     i 

t  H  M  n.ster  ,„  |,.„s,ons.     Local  committees  under  ,he  same  act 

ercise  the  tunctions  e\ercisd)I(.  I.v  .1,..  •  •  •    <-x 

^tanc-  of  the  Statutor:  Colimih.e;  "  ^"'"'"'""^  ''  '''  "'■ 

Customary  provisions  were  made  ,n  the  act  as  to  the  salan  of 
^  M.-tcr:  the  appointment  of  a  secretary,  offcers  a,   .  s  r  '! 

deX         ,:?'  'T    ''7-;""^-  ^'i^il-ility  ..r  the  .linister  and 
tl>e  .crcur,  u,  s,t  u.  the  Ilouse  of  Commons:  and  the  transfer 

I'y  tins  ac,   the  .ulnnnistration   „f  sovernmen,   pension.   .„,d 
nllouances  „,  soMi.rs  and  saUors  and  their   f,m,I,  ■ 
-'tHdued.     Hu,   ,h.  ceu.,ali.a,io„   .       ^     oZ  "e""  TT 

I     "I.-   M|    ||„.   Adinira  t\    ai'.     \^'-ir   oiY,..  w 

^■^thcr  the  central  ,  r  the  I       1      1        •  '""'  ^•'""'""i"^ 

■-d, >,at  , t,n,htrcsuhn.pcn..ns  ,..,„,,„,  ,,^^ 

;n.^.u.wM,n.tr.    uas    „,an.urated   l,y    „H.   a, numcn,    of 

■-.-X.  I...n,c-,  a  ,:u.,nl.cr  ,.  the  Lah„r  party,  a.  .M„„.u.r.  m 


1 


!1 
I 

i 


WAR    KKLIEF,    PENSIONS    AND    PRISONERS 


1C3 


J 

5 


thf  i>nd  'jcor^'t  administration.  Under  date  of  February  2<!. 
I'.OT,  there  v.i^  iiuolished  the  draft  of  a  Royal  Warrant  and  of 
an  Or'irr  in  »  ■uucA  fur  ;i  new  schedule  of  pensions  to  disabled 
-oldicr^  afifl  vi  .  and  t,,  the  families  and  dependents  of  de- 
ceased soi'li*-'-  a:  ■  -ailors  in  consequence  of  the  present  war.  ' 
This  provide''  for  .  talc  of  weekly  pensions  to  disabled  soldiers, 
in  ti<,dit  clas>t-,  ran^.  ■  .r,,m  mrixima  from  l'Ts.  <;d.  for  privates 
to  4i's.  lid.  for  warrant  .ifticers.  fur  the  loss  of  two  or  more  limbs, 
down  to  one-liftb  of  these  amounts  for  the  loss  of  two  fingers, 
with  additional  allo.vaiw-es  for  children.  The  niinimum  weekly 
pensions  to  widows  wxf  from  i;-  !td.  for  privates  to  21s.  ."id. 
for  warrant  officers,  with  the  saiD.*^  -jilf-  ♦'  additional  allowances 
for  children  as  for  (!isai)le(l  soldwr  ^  '  val  Warrant  for  pen- 
sions to  soldiers  and  their  families  ane?  'iep<»ndents  and  an  Order 
in  Council  with  regulations  for  fiwisions  •  :  seamen,  etc.,  were 
issued  under  date  of  March  i'"',  lid 7. 

Other  documents  were  iirejiared  provHlins-  >t  the  retired  pay 
of  disabled  officers  and  for  pensions  for  iaiiitlies  mil  dependents 
of  deceased  officers,  nurses,  etc.,  '  and  iiisrrucions  \,:r  ;|,e  assess- 
ment of  alternative  pensions  for  tluM-  ^'irning  high  wages 
or  salaries  ir,  civil  life,  providing  that  iocai  e  imnmi.-.s  should 
consult  with  advisory  wages  boards  of  the  Ministrv  ■•:  l„-".r. 

Ill  .\ugiist,  IIMT,  .Mi.  liarres,  the  Minister  ot  I'ensio!..  reply- 
ing to  a  i|uestio!i  calling  attention  to  complaints  oi"  dflav  m  fi.x- 
ing  pensions,  called  attention  to  "the  increas.nr,,  irregular  iind 
vast  growth"  of  tlie  work  of  the  i.ew  departnieiit.  i  he  statt 
Consisted  of  :;,.".oo.  mostly  women,  most  of  them  wuh  little  more 
than  a  year's  strviee  and  none  with  any  preuar  experience. 
Weekly  payments  had  been  authorized  to  nearh  :.-,o,o.io  uwv. 
women  and  ciuldren;  the  numl)er  of  "  rene\^;l]s  "  taeli  in.  ntii  was 
reaching  lens  of  thousands:  and  the  preiuir.iti.m  of  ta^es  lor  the 
riliunal    promised    to    ad'!    -til!    fiirtl-.T    to    the 


new    .\ppea! 
burden.  ' 


8485. 


/■<i',i.liii.-)i(,;rv  l'iif,>i\   ]'l\7.  C< 

■  n-ui..  i'<r  wai. 

'  ^.'//ci/.ir.t  .l,-,ir)uil.  AiiguM  4,  I'd/.     W  tliv  end  ..)t   !'.>17   tii.  ■ 
ih.iti  l.i)IM),(HKi  ca-.  V 


I 


t\:" 


;.^i: 


164 


BRITISH    WAR   ADMIMSTRATION 


po«rs  duties  and  ,„„,,„„,  „,  „,  Sul   '  Col'  ™°"'  "" 

H'ffenng  as  the  result  of  military  and  naval  servfr.  ? 

to  include  measures  fnr  ti,  •  "  ^^'^^  extended 

trial   efficiency       Thes!  '■'''°"''°"  ^°  ^°<^'^'  ^"^  indus- 

treatmen    a"    .  d.^'ha"!"';"-^    '"'"'''    ^°"^'""^^    -'^■"l 
«l"strial  training  ^  ^  '  '"''  ''''^^'""  '"  «'"^^^i°"  and  in- 


'Thc  liar  Cabmct:  Report  for  the  Year  mi. 


pp.  185-189. 


?W' 


CHAPTER  IX 

Trade  and  Transportation 

From  the  beginning  of  the  war  there  was  a  great  increase  in 
the  extensive  antl  multifarious  duties  of  the  Board  of  Trade; 
and  as  the  war  progressed  the  expansion  of  the  functions  of  this 
Ministry  and  its  agencies  continued  to  develop.  In  addition  to 
a  multitude  of  committees  and  commissions,  a  number  of  new 
departments  have  been  created :  and  after  a  time  a  series  of  new- 
Ministries  was  organized,  which  took  over  important  sections  of 
the  Board  of  Trade  functions  with  new  powers  and  duties. 


TttE  Bo.\Rn  OF  Tr.\de 

Before  the  war  the  Board  of  Tratle  had  dealt  with  a  numerous 
variety  of  matters  relating  to  transportation,  by  rail  and  by  water, 
trade,  commerce,  industry  and  !ai)or.  Its  history  can  \v  traced 
from  the  councils  for  trade  and  for  foreign  plantations  created 
in  UltiO,  and  the  Board  of  Trade  and  Plantations  which  existed 
from  If.u.")  to  17>^1.  After  17>2  there  was  a  committee  of  the 
Privy  Council  on  trade  matters,  whose  functions  were  mainly 
statistical  and  consultative,  .-\fter  1>^40  new  duties  of  an  execu- 
tive and  administrative  character  were  added.  In  isii-j  the  Hoard 
of  Trade  in  its  present  form  was  organized.  It  is  one  of  a  num- 
ber of  nominal  boards  in  the  British  administration,  consisting 
of  a  grouj)  of  older  officials,  who  never  meet,  while  the  work  of 
the  board  is  carrieil  on  under  the  direction  of  the  president,  who 
is  regularly  a  member  of  the  Ministry  and  of  the  House  of 
Commons. 

In  addition  to  the  president  and  the  usual  parliamentarv  ,ini! 
permanent  secretarie>.  then-  are  five  assistant  secretario.  eacli 
having  charge  of  out-  of  the  princijial  ile|)artnient:>  into  which  ihc 
work  of  the  Board  of  Trade  u;in  dividetl.  a>  follow>  : 


I 
-1 


1(5« 


BRITISH    WAR    ADMI.VISTRATION 


The  Railway  department  had  powers  of  regulation  over  rail- 
^^ays  and  other  pnbhc  utilities,  such  as  street  railwavs    wate 
gas  and  electric  plants.  '  ' 

The  Harhor  department  had  control  over  ports  and  harbors 
and  superv.s,„n  over  the  bodies  in  charge  of  lighthouses. 

me  chant    .'"'  .''^P^^"".^"'  ^■•^-^•'^^J  an  extensive  control  over 
merchant  sh.pp.ng.  registering  vessels,  examining  officers    and 
regulatmg  the  methods  of  o,K;ration 
The  Labor  Exchanges  and  Unen,ployment  Insurance  .lepart- 

The  Commercial  department  collected  an.l  publishe.l  informa- 
t.on.  mamly  stat.stical.  on  trade  and  c.n.merce  of  the  Unked 
Kingdom.  British  colonics  and  foreign  countries 

(Jther  matters  entrusie.l  to  the  Hoard  of  Trade  included  the 
M.I>erv,s,on  of  joint  stock  companies:  bankruptcv:  ,     ent       le 

nsu    ot  production;  and  tra.le  boards.     Connected  with  the 
c...  ot  lra,le  .s  .he  Light  Railway  Commission;  and  therj 
also  a  KaiKva\  and  Canal  Commission. 


Railway  a.nd  C.vnai.  .Aomim.stratiox 

On  ..\ugu..,  ,.  M.H.  ,he  dav  of  .he  declaration  „f  war.  a  plan 

t-    he  gover„nu.nt  control  of  the  railuav  svstnn  of  (Ireat  I  r 

|-    iTongl,  a  central  Railway  K xecut,vc\-..nmittee  was  t  m  - 

.-1.  and  announced  through  an  Order  in  Councl.  under  tie 

Kcg^latu.  oMhe  Forces  .Vet.  ,.:,-wlnch  took  elfect  at  m'^ 

uJ'^JTTT  '";  ""  ^'"•""--'^"  -t''-ity  under  which 
t  -n.  ol  .,  ,he  nulwavs  was  taken  over  ha.l  been  lai.l  in  -. 
>erK..   „t   parhamentary  acts    f,cm    ,.,,   to    I,s>,s       ^„     ,     , 

;    a,  d..v  to  n,ove  troop.,  with  ,heir  e.pnpment  and  miii- 

•ar>  s.„re.  a,  pr.ce^  and  upon  cond.tion>  to  be  arrange,!  bv  con- 


TRADE    AND    TRANSPORTATION 


167 


tract.  Two  years  later  another  act  specified  the  maximum  rates 
for  conveying  troops  and  military  stores  The  rates  of  military 
fares  were  revised  in  the  Cheaj)  Trains  Act  of  ls>;5.  ' 

l'\)ilo\\ing  the  Franco-I'rnssian  War.  the  Regulation  nf  the 
Forces  Act  of  l^^Tl  -  pnjvidetl  that  in  case  of  emergency,  de- 
clared In  Order  in  Council,  the  Secretary  of  State  might  hy  war- 
rant empower  any  person  to  take  posses<iion  of  anv  railroad  in 
the  Unitetl  Kingdom  and  to  use  the  same  at  ^uch  times  and  in 
such  manner  as  the  Secretarv  of  State  may  direct.  Such  war- 
rant could  not  he  drawn  for  a  longer  period  than  one  week:  hut 
was  rcnewahle  "  from  week  to  week  as  long  as.  in  the  o])inion 
of  the  Secretary  of  State,  the  emergency  continues." 

The  N'ational  Defense  Act  of  I'^s'^  '  gave  the  government,  un- 
der emergency  conditions,  power  to  dictate  to  the  railways  what 
precedence  should  he  given  to  Sj,ecial  k'.ids  of  traftic. 

Under  this  legislation  plans  of  organization  had  heen  worked 
out;  and  plans  of  mobilization  had  l)een  ])repared  and  tested  on 
a  small  <calc  in  arm\'  maneuvers.  In  l>>ii.">  the  Engineer  and 
Railwa\-  \dlunteer  StatT  Cor))s  had  l)een  organized,  with  the  ob- 
ject of  directing  the  application  of  skilled  labor  and  of  railway 
transport  to  the  problem  of  national  defeii--(,',  and  for  preparing 
plans  to  meet  the  actual  conditions  of  war.  This  corjis  consisted 
of  railway  officials,  engineers  and  large  contractors,  who  were 
usually  given  honorary  conmiissions  in  the  i'ritish  army.  When 
the  Territorial  Forces  were  created,  the  l-.ngineer  and  Railway 
Staff  ('or|)s  was  merged  in  the  Ro\al  Fngineers  of  those  forces, 
but  remained  under  the  administration  of  the  War  Office.  ' 

In  IMH!  a  Railway  War  C"oimcil  had  been  created,  to  act  in 
an  advisory  capacity  to  the  I'.ngineer  and  Railway  Staff  Corps 
This  consisted  of  fifteen  member^.,  of  whom  six  were  r.iilway 
managers,  and  nine  represented  different  branches  of  the  army, 
navy  and  the  Hoard  of  Trade,  with  the  Deputy  (Juartermasttr 


'5  .111(1  6  \'irt.,  cli.  55.  'cc.  20:  7  ami  8  Vict.,  cli.  S5 
\  irt  ,  cli    M.  *<c   (• 

'  M  and  .?.=;  \'ict  .  di    W. 
'51  anil  S:  \'wt  .  ch.  .U. 

•  ihf  Tiuus  //o-,M'    ,./  //,,•  n  .!r,  VI,  cli  ptn,  p  ]>^^ 


MC.   IJ;   4(1  aiul  47 


if  r 


168 


BRITISrr    WAR    ADMINISTRATION 


'  ra  w        ^^T    7"'""'  ^^^P^"'  °^  gener^  managers 

ail  va         R  "'^'^\^"^'^^  ^^  =>  '*"•<  »^tween  the  armv  and  the 

K  '       •   •     ^f  r  '•"'  ''"•  ''^'^  *^°'"'"'"^^  'I'^^lt  largeh'  with  the 

cral  of  M  luary  Transport,  .n  working  out  and  testing  plans  and 
jnethods  tor  railway  service  in  ti.e  of  war.     For  se'e'a,     ea" 
I'et„re    he  war.  o,H.rat,ng  railway  executives  from  time  to'time 
rece,ve.i  sealed  orders  covering  mobilisation  scheme.r  n  dJ^aT 
uh.ch  automafcally  became  effective  on  the  outbreak  of  war  ' 

As  noted  above,  on  August  4.  1!)14.  an  Order  in  Councilwas 
prumulgated  un.ler  the  act  of  1871  declaring  that  an  emergenc 

o  nt::r::; ::  ^^"-f '  ---^p-'-t  ^^r  the  government  :x 

Tr     t  .       ,7%"/  'T'  ^"^-^     «"  'he  same  date  a 

warrant  ua>  ,ssued  by  Mr.  Asquith.  as  Secretary  of  State  for 
Uar.  empowering  the  president  of  the  Board  of  Trade  to  take 
-sess,o„  of  all  the  railroads  (excluding  tramwavs)  JL^ 
n  am  and  to  ..e  the  same  for  the  convey..ncc  of  naval  or  m  b- 
ar>  forces  or  stores  or  for  any  other  purpose.  This  warrnnt 
has  been  renewed  from  week  to  week  = 

.l.roS  tbe'R'T'""  r"  ^"^■""'""^'  '^"'"^••'  ^^^  '-"  -ercised 
eT     n,      J      ,"u--'''''"''^'^  Committee,  previouslv  organ- 

r;heH;:;;r:fVt:™:^::trT""^^^^^ 
^va.^er.ofu,e^,.do:•a.^x:s:::;r";:d^'r^^ 

n^,  er<  co„s,sted  .,f  ,be  genera,  managers  of  the  I^  ^ 

n:-,  •  l^r,;"  'T  '"""•  '-''  '''■  -'P-"«endent  of  one 
railroad      The  nnm!,cr  ot   members,   at   first   eleven    wis  Inter 

rn  r,  .lun    I.,.(.,h.  m,Ie..  or  about   tbree-tourtb.  of  the  entire 
ra.lway  nnleage  ot  (Jrca,   Britain.     Since  August    VJU    a    ew 
;   angc.  m  personnel  have  been  made  in  the  ctnnnt.ee     h^  ^ 
-'-Ic  ..  l.a.  ren,amed  sui>stan,ially  ,be  >an,e.    The  >ever-,I   „em 
•-..the  committee.  n,a..dition  to  their  work  on  theZr 


'  Ma,,u„l    ,i  I  ,""  "'•""'".  pp.  7(1-78 

•V.-M../  „;  /:„„.,..„,,  U,.sla>u,n.  sVp...ml,,:r.   ,.,4.  pp.  ,KH..i„. 


'/  thi'  Kailuiiys 


■iwrB^fiata 


TRADE    AND    TRANSPOU  PATION' 


16C 


are  also  responsible  tor  the  management  and  operation  of  their 
respective  railways.  ' 

CommcntinR  on  these  arrangements,  one  writer  has  remarked : 
"  It  would  Ik;  more  correct  to  write  that  the  railways  were  dur- 
ing the  war  administered  imt  by  the  governiTicnt.  but  for  the 
government,  the  management  of  the  railways  and  the  statT  con- 
trol l)eing  the  same  as  in  the  days  of  ])eace.  Orders  for  the 
necessary  facilities  were  issued  b\  the  Transport  Department  of 
the  War  Office  and  the  Railway  I'xecutivc  furnished  the  trains." 
Moreover,  the  railwa>  transport  officers  in  the  War  Office  were 
often  men  who  in  civil  liie  had  been  railway  officials.  -' 

Distinct  advantages  ajjpear  to  have  resulted  in  the  manage- 
ment of  the  railways  from  the  existence  before  the  war  (jf  a 
definite  organization  and  plan  of  action.  Moreover  the  ccmcen- 
tration  of  authoril\  in  the  hands  nf  (jiic  central  body  from  the 
beginning  appears  t<i  have  aided  in  securing  more  satisfactory 
results  than  in  t)ther  lines  of  activity.  There  is  a  noticeable 
absence  in  the  records  of  numerous  special,  investigating  and 
temptirary  committees,  sunmitting  discordant  repi>rts:  and  the 
organization  set  up  at  the  outlet  of  the  war  has  remained  in  ex- 
istence without  change  in  the  general  system. 

.At  the  same  time,  it  may  be  said  that  the  t)rdinary  peace  ^ir- 
ganization  of  the  railroads  had  l)een  already  more  gener.illy  com- 
bined in  .1  small  number  of  com])anie>,  than  in  other  lines  of  busi- 
ness brought  under  government  control:  and  the  ta^k  ni  uniting 
and  coordinating  their  activities  was  perhaps  less  ditYicult  on  this 
account. 

By  mutual  agreement  between  the  government  anil  the  rail- 
ways it  was  provided  that  instead  of  paying  for  any  >pecilic 
movement  nf  tnio])-;  or  ^U])]ilies.  the  government  guaranteed  each 
road  its  normal  net  income  for  the  year  r.M.'!,  and  winild  pay 
such  sums  of  money  as  would  secure  this  result.  Later  the  g'>v- 
crnment  agreed  to  assume  the  burden  nf  incrcascl  rate-  .'i  pa\- 
allowed  as  a  war  bonus  to  railwa\  cinploves.     I'.atK  in  HUT  the 


'  Dixon  and  I'arimltf  :  .■/'    itl    pp.  "J.  "S  CO- 

■  Thi-  Tini.s  //;jf,.rv    ■/  ihr  /(or  m.  ch    KM),  pp,  l,s,M84,  18«. 


I 


^Rn 


MICROCOPr   RESOIUTION   TIST  CHAUT 

(ANSI  ond  ISO  TEST  CHART  No   21 


^     -APPLIED  IIVMGE 

^^  165)    E.d<.'    Mg.n    Street 

y^         Wochesle',    New    lofk  14609        Uj 

{"61    ^82   -  0300  -   Phone 

(''6)    288  -  5989  -  Fo« 


170 


BRITISH    WAR   ADMINISTRATION 


financial  agreement  u•a^  further  modified  so  as  to  provide  i  fnnr 

vested  m  railway  prop.rtv  since  August  4    1<)17-  .n,l 
provide  that  reasonable  charges   forUn tna       'o  "  .aM  l! 

'r^;  Ti^  T''  *"'^^  ""'-^'-^  -pens;!:::,:"" 

Keport.  ot  financial  operations  up  to  March  'Jl    ^<ur     u 
.hat  ,„e  g„.,r„„,e„,  ,,,.,  p„i„  ,„  „,',,,„.;'         ,       '•;•■;;«■ 

Xs  a  inrther  deterrent  to  passenger  trafiic.  fares  were  i     r  "  e  , 
one-ha.t  on  January  1.  1,17:  and  shortiv  afterw'    ds  Z  n 

,„„  I.  ^^^''-     O"  "i"^t  "-aiiways  restaurant  cars  ceased  to 

no  eat  Lrita  n,  except  the  underground  and  local  railwa^■s  of 
Lomlon:    HI.  dul  not  include  the  railwavs  in  Ireland      But  ,^ 


"ixiiii  ami  1>, 


•'nL'""'//'''"'",-*'  "f  "'•'  "■'"-■  ^" 

I'lxoii  and  I'armi-lcf  :  »/..  nV..  p.  KM. 


'f-  i-ir.  pp.  82-88. 

'■  cli    I'L',  pp.  42y-4J0. 


TRADE    AND    TRANSPORTATION 


171 


Included  in  the  railway  systems  taken  under  government  con- 
trol was  about  half  the  mileaijc  i  l.Oi'.'.  miles)  of  inland  canals 
in  Great  Britain.  The  tnvners  (jf  and  carriers  on  independent 
canals  found  themselves  unalile  to  meet  the  competition  of  higher 
wages  paid  on  the  railway  routes:  ami  a  serious  reduction  of 
canal  traffic  resulted.  To  meet  these  conditions,  on  Januarv  1, 
1IU7.  the  Board  of  Trade  took  over  all  the  principal  independent 
canal  companies,  and  subsequently  took  over  the  Iri.sh  canals,  on 
the  same  financial  terms  as  the  railways — embracing  \,-2i)-2  miles 
of  waterways  in  England  and  :i()4  miles  in  Ireland. 

.\  Canal  Control  Committee  was  appointed  to  manage  the 
canals,  including  representatives  of  the  Board  of  Trade,  the  War 
Office,  the  Ministry  of  Munitions  and  of  the  railway  companies, 
canal  companies  and  canal  carriers.  Three  subcommittees  were 
organized  for  the  northern,  midland  and  southern  canals.  The 
committee  has  taken  steps  to  secure  and  train  men  for  canal 
work,  and  to  increase  canal  traffic  in  order  to  relieve  the  rail- 
ways: and  the  decrease  of  canal  traffic  is  said  to  have  been 
averted.  ' 


Foreign  Trade  and  Enemy  Property 

Various  measures  were  taken  for  the  regulation  of  foreign 
trade  and  enemy  property — b(Jth  for  preventing  trading  with  the 
enem\  and  for  the  protection  and  promotion  of  British  trade 
with  other  countries. 

Under  the  common  law,  trading  with  the  enemy  was  unlaw- 
ful;  and  a  Royal  Proclamation  of  August  ■"),  11U4,  gave  notice 
warning  any  person  resident,  carrying  on  business,  or  being  in 
the  British  dominions  against  trading  or  having  any  comtaercial 
intercourse  with  any  person  resident,  carrying  on  business,  or 
being  in  the  (.erman  I-'nipire.  Another  Royal  Proclamation  of 
August  1:2,  extended  this  prohibition  to  trading  with  .Austria- 
Hungary.     On  .'^e[)tembcr  !•,  a  revised  proclamation  relating  to 

'Hoard  of  Iradc  Jourmil.  .latiuarv  lU,  1<)18;  reprinted  in  U  ^5  C<mmcrcc 
Kcforls.  .\o.  -7,  February  1,  1918. 


172 


BRITISH    WAR    ADMI.VISTRATIOX 


1 


rrad,„g  ^y,th  the  enemy  was  issued,  extending  the  prohibitions 
and  prov,d.ng  tor  exceptions  by  licenses  given  bv  aTec  e  a" 
of  State  or  the  Board  of  Trade.     Further  Lendments  and    x 
tensions  were  made  from  time  to  time  • 

Revlnue'w  °i"-^""  t:'"""^'  ""'^'-  '""^  ^"-^^-^  -^'  ^"1-d 
Re  enue  Act.  l.s.  ..  proh.b.tmg  the  exportation  from  the  United 

K,ngdo,n  of  certa.n  warlike  stores  and  provisions.  On  August 
ca;  w  e  TTf  (Exportation  Prohibition)  Act  be- 
car  I.  u.  extendmg  the  provisions  of  the  act  of  IsT-,  co  all  ar- 
ticles, durmg  a  state  of  war.  and  providing  that  procllations 
made  under  that  act  might  be  amended  by  an' Onler'^f  !he  P  i" 
Councd.  on  t   ,  recommendation  of  the  Board  of  Trade  = 

Lmier  this  act.  Orders  of  Council  were  issued  from  time  to 

came"ltv  "'  ^'I'''";'"'  ''"'''"^  ^°  ^''^^""^  ^'^"^  ^^e  enemv  be- 
came law  on  September  IS.  1014.     This  imposed  severe  penal- 
t-es  on  persons  trading  with  the  enemy  in  contravention  ^f'pro  . 
ama  .or,  .s  atute  or  common  law;  and  gave  p.nvers  to  the  Board 
ot    Trade  to  mspect  books  and  documents,  and  in  certain  cases 
to  apply  to  the  High  Court  for  the  appointment  of  a  re    i"r" 
Under  these  acts  and  the  proclamations,  a  number  of  pro  e- 
cufons  took  place.     In  one  case,  a  firm  of  Glasgow  mere'  an  s 
was  convicted  of  being  instrumental  in  supphing  I  carro^.ron 
-e  to  Krupp  and  other  German  concerns^       '  ^ 

enfnlf -IMT"  '"1'°"  ''''''  '''  ''  ''''''  '^'^"■^»'^"^->  -^  ^'-n 
eKm>.  .n  the  case  of  corporations  and  others.     In  the  case  of 

h^^ortmema.  Tyre  an<,  Rubber  Co.  (Great  Britain ;  L;:::it: 

^.  Da  mler  Cnn.pany.  I.,m,ted,  the  Court  of  Appeals  hel.l  ,  h„. 

-ry  L..  1.1,)  that  the  tire  con.pany  was  an  English      m     " 

It  uas  „,corporated  in  lu^gland.  but  was  an  offshoot  of  a  Ger: 

S^o'^;:X>ln's:'37^^''^'"""•■  S^'"-''--  >^'4.  PP.  08,  ,,75.  .578.  384 
an.li'rrV:^,/^;;r''"''^'   '-"'""""■   Sn>.emb.r,   1914,   pp.   2X   lOO-m-   4 

:  4'::::rUt!T';^";,^  '■■"-'"'-"■  ^'•i>"'""'".  ^a.  ,,.  ,70-170, 520, 

Uc  Iwus  l/islory  of  the  n\,r.  v,  c!,   ')fl,  p.  2%. 


TRADE    AXD    TRAXSPORTATIOV 


iT;i 


man  company,  which  held  most  of  the  shares;  and  the  rest  were 
held  by  Germans  resident  in  German}-,  except  one  held  l)y  the 
secretary,  a  German  by  birth,  naturalized  in  101<».  This  deci- 
sion was  supported  by  five  judges,  with  f>ne  judge  dissenting. 
But  the  House  of  Lords  overruled  the  decision  hv  the  unani- 
mous action  of  the  eight  judges  sitting,  on  the  ground  that  the 
secretary  had  no  authority  from  the  company  to  commence  tlie 
action.  Lord  Halsbury,  in  his  opinion,  answered  Lord  Reading's 
argument  (in  the  Court  of  Appeals)  that  the  company  was  a 
"  live  thing,"  and  stated  that  "  no  one  has  authority  to  issu  a 
'vrit  on  behalf  of  an  alien  enemv."  ' 

In  the  case  of  Porter  v.  Freudenberg,  the  Court  of  Appeals 
held  (January  10,  lOl,",)  that  the  test  of  a  person  being  an  alien 
enemy  is  his  place  of  residence  or  business,  and  not  his  nation- 
ality; that  an  alien  can  not  sue  in  the  King's  court  unless  he  has 
a  license  to  reside  in  the  realm;  but  that  he  may  be  sued,  and  if 
sued  may  defend  and  appeal.  - 


Custody  of  Enemy  Property 

In  September,  l!tl4,  licenses  were  granted  by  the  Home  Sec- 
retary to  certain  Clerman,  Austrian  and  Turkish  banks,  in  the 
United  Kingdom,  to  continue  in  business  to  complete  transactions 
l)egun  before  the  war  under  the  supervision  of  a  Treasury  agent. 
Other  licenses  were  granted  to  certain  enemy  subjects  by  the 
Home  Secretary  and  the  Board  of  Trade.  ' 

An  act  of  November  I'T,  1014,  amending  the  Trading  with 
the  Enemy  Act.  provided  for  the  apjxiintuient  by  the  Board  of 
Trade  of  an  ofKicial  custodian  of  enemy  jirojierty  for  England 
and  Wales,  for  Scotland  and  for  Ireland  respectivelv.  The  Pub- 
lic Trustee  (under  the  Public  Trustee  .Act,  100(!)  was  designated 

'  Tin-   Times  History  „/  Uic  ll'ar.  ix,  cli.  150  pp.  407-468 
Ihid..  IX,  cli.  151).  p.  4/1. 

w'J'"'  J>!""f  "'"'"'>■  "f  ""'  ."■'"■.  i>'.  Hi.  150,  p.  446.  .\  report  of  .Sir 
William  nuiuicr,  appointed  as  eoiitrollcr  of  Cormaii  and  .Austrian  hanks  in 
London  sliowc.  t liat  tlio  miinhcr  of  enemy  Mil.ject.  m  tliese  hank-s  had  heeii 
reduced  from  440  cm  July  .il,  Ii>14.  to  10  on  I  )eremher  1  V>U^  ■  and  ilie 
nuniher  oi  IJritish  snhjects  had  heen  rednee<i  from  47.5  to  I4S  !',ir!uu,u-ntarv 
/a/'cT.f,  191/,  Ld.  8430.     See  also  /',i.7mm,')i/cirv  /'.i/'irj,  1917    LdS45S 


a- 


^'^  nRITISir    WAR    ADMINISTRATION 

as  custodian  for  FnglancI  and  Wales;  the  Accountant  of  tl,e 
Court  ot  Session  as  custodian  for  Scotland,  and  the  Official 
Ass,snee  ,n  Bankruptcy  attache.l  to  the  King's  Bench  Div^  on 
of  the  H,.h  Court  (Ireland)  as  cust.-dian  for  Ireland  ■ 

Lnder  this  act  it  was  re.juired  that  enemy  ,,ropertv  be  re^is- 
re.   wnh  the  custodian  by  trustees  and  incorporated  conipani 
d.v  dends  and  other  income  for  the  benefit  of  an  enenn         be 
pa,     .o  the  custodian:  an<,  the  High  Court  was  auth^i        l 
^t.st  any  M,ch  property  m  the  custodian.  an<l  to  confer  on  bin 
povu^rs  of  selling.  n.anaging  or  otherwis;  .leali!;  wh  f  t 

The  report  of  the  Public  Trustee  for  the  year  ended' March 

h.d  blen  r  7  T  "T""'  ^'''^''''''  '°  '^''  ^-'-""^  '^^  £S4..)«)(..C00 
had  leen  reg,stered:  and  that  income  of  £7m.Ooa  had  been  re- 
ceuel.  Arrangements  had  been  made  with  the  Bank  of  Eng- 
land tor  mvestments.  -  ^ 

The  report  of  the  Public  Trustee  for  the  year  ended  March 
..1.  l.'U,.  .howed  a  temporary  st.-tT  <,f  -.7  persons  employed  in 
carr,,ng  out  the  provisions  of  the  Trading  'vith  the  EnemV"! 
The  hnancal  nUerests  involved  may  1.  summarized  as  foilows ' 

To!:!   ."^l^h^X^^vi-^Sl!:]!^,?:^-  T':'^  -  Pai,.  over     £,34,000,000 
cs..n,a,cd  on  .he  ..aiis  of  vl^t^'^i^.-.-r:  .':"":':"<:^  90.000,000 

''"l^  jS  "K^  ""^'"•""'^  "^''^  "-"  over  or  vested  „,    ====^^^=^ 

'"ur^Sr'^  "^  'i-  custodian  i„-accnrdanee  with  Trea;;      '     '■''''''' 
2.748,484 

ll'ar  Trade  Department 

On  February  -lu,  v.n:,,  the  Treasury  ann.nmced  the  forma 

t'<'"  ot  a  new  U'ar  Tra.le  Depart.nent,  t.",  replace  the  fo  merZ" 

n.utee  on  trade  w,th  the  enemy  in  dealing 'with  applica^i:  f^ 

o  t  ..nd  tmport  bcenses  during  the  war.  and  to  embrace  an 

en^.Ke  dn.,s,on  which  shouui  serve  as  a  clearing  hou^  f^ 

all  uar  commercal  mtonna.ion.     The  remain.ler  o^"  the  work 

p.  i';/si;;,pk.„H'':t  x;;3;";;"=(5/  '■'"""""y  '-^^'.nslauo,,.  supplement  \o.  2. 
I'^vImmcHtary  l\,f,-rs.  I9l4-iyi6,  Cd.  7833. 


TRADK    AM)    TRAN'SPORTA TlOX 


175 


of  the  Tradinj:::  with  the  Enemy  Committee  (retatiiiR  to  the  move- 
ment of  funds  and  other  questions  mainly  concernin;;-  tlie  Treas- 
ury) was  transferred  to  the  Treasury,  to  l)e  performed  l)v  the 
Parliamentary  Counsel  and  his  staff.  The  Privv  Council  export 
license  department  was  moved  to  the  offices  of  the  War  Trade 
Committee  to  act  in  connection  with  tlie  new  dejiartment.  ' 

The  Rij^ht  Ilonorahlc  Lord  Emmott  was  appointed  as  direc- 
tor of  this  department.  In  addition  t^  the  director  and  secre- 
tariat, the  department  has  been  organized  in  three  sections.  The 
licensing;:  section  deals  with  applications  for  licenses  for  the  ex- 
port of  p;oods  which  are  subject  to  prohiljition  or  restriction  on 
export.  It  inckides  a  statistical  branch,  and  keeps  records  of  all 
ajjiilications  for  licenses  and  of  the  decisions  given.  The  intelli- 
gence section  is  a  clearing  house  for  war  commercial  intelligence. 
The  statistical  section  has  for  its  main  function  the  collection 
of  statistics  of  all  imports  into  neutral  countries  in  northern  Eu- 
rope contiguous  to  the  enenn-.  -' 

A  War  Trade  Advisory  Committee  was  f(irmed  on  September 
20,  l!)ir>,  to  advise  on  the  restriction  of  enemv  sup])lies,  to  co- 
ordinate the  administration  of  the  War  Trade  Department  with 
the  Contraband  Committee  (of  the  Foreign  Otifice).  and  to  ad- 
vise the  Cabinet  on  questions  of  policy  ^rising  from  the  work  of 
these  bodies.  This  committee  consisted  of  l*.">  members,  with 
Sir  F.  Hopwood  as  chairman;  and  included  Sir  Robert  Cecil, 
Under-Secretary  of  F'oreign  Affairs.  Lord  lunmott.  Director  of 
the  War  Trade  Department,  and  Mr.  Steel-.Maitland.  ' 

Several  other  laws  amending  the  Trading  with  the  Enemy  .\ct 
were  pa.s.sed  during  the  latter  part  of  1!>L").  An  act  of  Decemlwr. 
I'.tl.")  (ch.  ils),  gave  powers  to  extend  the  prohibitions  on  trad- 
ing to  persons  of  enemy  nationality  or  enemy  association  though 
not  resident  or  carrying  on  business  in  enemv  territory  or  enemv 
occupied  territory.  A  Royal  I'roclamation  was  issued  under  this 
act  on  Fe])ruary  l".>,    lUlt;;  and  after  amendment   was  replaced 

'  Miiiuiiil  I'f  I'.iiirri/ciuy  /.,-</i.f/ii/i,ui.  Stii>]''i'iiiciit  N'o.  ,i.  p.  551. 
'liberal    Year   [lool;.   1917.   ],.    163;    cf.   British   Jiitfciia!   CiiUr.dur    19Io 
p.  4()7. 

'  Liberal  Year  Hook.  1917,  p.  16. 


ire 


BRrriSII    WAR    ADMINISTRATION 


l)y  a  new  proclamation  on  May  '3    VUC,   vvh.vi, 

a  1.-st  of  houses  in  the  United  States      Vf       ^  ;  '"''"''"'' 

•"ent  nncler  a  controller   waesSie.lt    ^'"^"  '''''''  ''''''''' 
ernhodie.:  in  this  law.  ■  ^^^^'^''^hed  to  carry  out  the  policy 

In  January,  l!»l(i.  the  BmrrI  nf  r-o  i 

-in^'"piH.sinessesco„nLd  wth    he  '"'  T'""  ^"""''  ^" 

appoint  a  controller  J  hT  '"/"'••  '"''  ^"''^"^i^^'l  t- 

A  new  Trn  .  V,      ^"^  P"'"""'  "f  'nanagenient.  ^ 

exp..r,s.a„„  „p„".  '  '"'■''■  ''"■""""'  """"■  '»-'  «-'  coke 

frm..,  .eT;„ff  "  ,™"i  """'"•■"'■  '"'"'"'"■  '"^''-  »"..• 
ci.ll  c  „„mi'  r  •■■"     •'°""  manufactured  arlicles.     Sne- 

-K  :;'r;::,r:;r,r"  °"'"r'-  --  -«-^»"" March, 

5  and  6  Gen.  \'.  r'l-    70   08    105     i  •        ,  ^ 
.;/  the  kc.im  .l/<,„„u/;4th  ed    n    nV  ,^?  ?f  ^J^^"  in  C"U"cil.  ,„  /),./,,„, 


■/^:^.S'i^;.:^/S:%;^:'j''?^,-'^''-'5o..'-4^^ 


TRADE    AND    TRANSPORTATION  177 

was  appointed  Controller:  and  three  committees  were  formed  to 
advise  the  Controller  <in  the  importation  of  (n)  tohacco:  {h) 
preserved,  etc.,  fruits;  and  (c)  wchkIs  and  stones,  respectively. 
There  was  also  an  advi.sory  committee  on  imports  oi  (iran<;es.  ' 
In  Decemoer,  liUti,  another  committee  was  formed,  with  Lord 
Curzon  of  the  War  Cabinet  as  chairman,  to  report  on  further 
restrictions  of  imports.  Xew  restrictions  were  put  in  force  on 
March  1,  l'.)17,  under  the  supervision  of  the  PuKird  oi  Irade: 
and  imports  were  decreased  hy  t'lOO.OOO  tons  a  month. 

Insurance 

For  the  protection  of  British  trade  a  scheme  for  the  insurance 
of  -ships  and  cargoes,  based  on  a  report  of  a  subconmiittee  of  the 
Committee  on  Imperial  Defense,  was  announced  on  .Xugust  4. 
1!»14.  Under  this  the  government  was  to  insure  s(t  per  cent  of 
the  war  risks  on  ships  at  Hat  rates  (ranging  from  1  to  .">  jier 
cent),  the  e.xisting  mutual  insurance  associations  to  accept  the 
remaining  20  per  cent,  and  to  be  respon.sible  for  admini.stration. 
For  the  insurance  of  cargoes  a  .special  government  insurance 
department  was  to  be  provided:  with  an  advisory  Ixiard.  with 
powers  to  fix  rates  of  premium,  within  the  limits  of  1  to  .".  per 
cent.  A  similar  scheme  was  arranged  by  the  P.oard  of  Trade 
with  an  association  re])resenting  the  owners  of  steam  tishing 
vessels.  ■' 

The  War  Risks  Advis'.jry  Committee,  to  carry  out  the  govern- 
ment scheme  of  cargo  insurance,  aiipointed  in  .\ugust,  lit!  1,  con- 
sisted of  17  members,  with  .Sir  1).  Owen  as  chairman,  and  Mr. 
J.  W.  Verdier  as  secretary.  On  .\ugust  'M.  the  premium  rates 
on  cargo  insurance  were  announced  at  J  per  ceiU.  ' 

A  committee  was  ajipointed  l)y  the  I'mard  of  Trade  on  June  ■_'!. 
Tl'.)'.').  consisting  of  five  members,  with  Mr.  !■'.  11.  Jackson  a.s 
chairman,  to  consider:  "whether  a  scheme  c.in  be  devised  to 
cover  loss  and  damage  by  boml)ar(!ment  and  ;urcraft,  in  so  far 

'  lihcral  Year  hook.  1917.  pii.  \^-\.  157:  TiuHS  Uistor\  of  llu-  ll\ir.  \i, 
ch.  1()9.  p.  92. 

■  rill-  Poliliail  OiiarU-rlv.  i.  1(.5,  183. 
•  The  Liberal  Vriir  Hook.  1917,  p.  16.?. 


irs 


BRITISrr    WAR    ADMINISTRATION 


It: 

» 
I* 


n-rin.™  :,:::■;:;;■:<  7»''"'"- = «•• .«■ ,.,;;„ 

inose  two  insurance  schemes  ni„„.-,r  .     i 
later  conil.ine.I  into  a  Wnr  k>i  L-     r  "  ''""'■  '''■*^" 

Kisks  Aclvisorv  C  „  mh  r  1^^^  ^       """"'  '''^'^^"  ^^•'"'  •->  ^Var 
i"-<urancea„done  ,-      ";^  ^""  ^^"'■■''""-^-  "•»••  ""  "marine 

An  Insnra  J  „,,"■'' V"     '--'«-''"->  insurance.  ^ 
connecLon  wit,:  .^n:;:;;:, '^^i::---  -  also  or,ani^ed  in 

conditions  in  nnrket     f  r  Trf'  "'  "'°"«Kra,,hs  on  trade 

traders.  Re  x'  to,  con  v'-'  '  '  ^  '"^"""  •"•-'  -^"•^^'•i'-"' 
tl-  Colonia  ':  ;^  "^'^^  ^f  '^^'^^'-'-  ---ed  through 
■^"Is.  were  published        '  "  '""'  — ^^^-"ers  an.l  con- 

siurces  of  ran,         '!,"'!''• '-  '"  '''''"''''  ■"'•-'"ation  on 
the  colonies    nJlirr^  ''  '"  "'"''^"'^  '"^^-  "^^'-^^  '-- 

"1   deianit   of  a-'reemenr    f,   i       >     .,' "^^  "'a.  ket.  payment. 

"c' "-cintni.    to    be   dendpfl    M-    ,u  i  • 

JtHlses  of  the  Ili.h  Courts.  '  '      ^  arbitration  of 

;  l\irUam.'„u,ri  Papers.  1915,  Cd    7997 
•♦  and  3  Geo.  \ ,  ch.  65. 


.:^!m 


^■•1i^ 


J-'  iff  ■M'i^'-t'' 


i 


TRADK    .WD    TRAXSPORTATION  170 

A  committee,  known  as  the  Prize  ICxecutive  Committee,  wns 
formed  in  the  I'mard  oi  I'rade.  for  the  purpose  oi  dealin^ir  otlier- 
wise  than  in  the  prize  court  with  detained  carj^oes  which  thcui^h 
possibly  liaiiie  in  law  to  condemnation  as  prize  mij;ht  with  advan- 
tage ]k  released.' 

DoMKSTic  Trapi:  ANii  Indistry 

Internal  commerce  and  manufactures  were  aNo  hroujiht  under 
active  government  regulation  hy  a  variety  of  conunitiees  and 
other  agencies.  Those  dealing  with  the  >upply  of  munitions  and 
other  war  matenals  h.ave  heen  discussed  in  the  chapter  on  the 
Ministry  of  Munitions:  and  other  parts  nf  this  report  i\c:\\  with 
railway  and  canal  traffic.  shii)i)ing  and  food  supplies.  Here  at- 
tenti(jn  will  he  given  to  a  varied  list  of  other  materials  and 
products  of  importance  in  commerce. 


Clu-niica!  Products 

In  August.  1014,  a  government  chemical  products  supply  com- 
mittee was  estahlished  to  consider  and  advise  as  to  the  best  means 
of  obtaining  for  the  use  of  Hrit-  h  industries  sutKcicnt  --uiiplies 
of  chcinical  |)roducts,  color.s  a  ;1  dyestuffs  of  kinds  iiitherto 
largely  imported  from  enemy  countries.  This  committee  con- 
sisted of  I'd  members,  with  Lord  Haldaiu  .1^  chairman  and  Mr. 
F.  Gossling  as  secretary,  and  includc<l  :\  nu:  ber  f  scientific 
specialists  and  a  re])rescntative  of  the  I'o.ir''  rru 

In  December,  the  15oard  of  Trade  am:      .cc 
the  formation  of  a  national  joint  stock  CKiiip.im 
facture  of  aniline  dyes,  outlined  in  a  circul,;'    ' 
Trade  committee  on  .-miline  dyes.     'l']'.<<  .-ciieinc  . 
ably  received  by  tlie  indu>tries  concernt  I :  and  aiu 
modified  scheme  was  .•ij)proved  by  the  committit 
(with  financial  arrangements  approved  1)\  the  Tn;< 
of  development  into  a  n.ore  C(im[irehensive  scheme. 

'Liberal  r,-,i.-  /;,^^',^  !')17,  p   l.^<«;  The  r>:ilic.il  Oiiart.'^.    1 

■  /.ilh-ral   )'riir  Unnt.  \"\7 .  p,  1.^0. 

•   The  Political  Otuirteriw  .W..  5  lIOlSi,  pp.  16,?  1(>4. 


ill  -lie    for 

lie  iiiami- 

P.oard  .11 

■    '.'ivoi 


ISO 


BRITISH    WAR    ADMINISTRATION 


In  connection  with  the  .lyestuffs  schemes  a  commissioner  for 
dyes  and  a  Dye  Colors  Distribution  Committee  were  provided. 
A  Fetrol  Committee  was  appointed  on  April  20  1!U(J  to  in- 
sure that  adequate  supplies  of  petrol  (or  gasoune  for' motor 
cars)  shall  be  available  for  the  purposes  of  the  war  and  for  other 
essentia!  needs,  and.  with  that  object,  to  regulate  the  use  of 
petrol  for  other  purposes  in  the  United  Kingdom  ' 

During  the  year  1017.  the  petroleum  industry  was  brought 
fulb-  under  government  control.  In  February  an  interdepart- 
mental committee  on  petroleum  was  formed.  In  Mav  a  special 
departmem  on  the  control  of  petroleum  and  petroleum  products 
was  ort  -.ized  in  the  Ministry  of  Munitions.  There  was  provided 
a  mineral  oil  production  department,  and  a  petroleum  pool  board 
m  charge  ot  distribution.  The  petrol  control  department  of  the 
Boani  of  Trade  issued  licenses,  and  controlled  the  rationing  of 
the  civilian  population.  In  August  a  Petroleum  Executive  was 
formed,  to  <leal  with  large  questions  of  policv.  and  to  coordi- 

"he  WaVoffi''  "^  7f  "V'^P-^'"-^^-  especially  the  Admiraltv. 
the  W  ar  Office  and  the  Ministry  of  Munitions 

Committee  on  the  Use  of  Cocaine  in  Dentistry 

Committee  on  Cocaine  and  Opium  Permits      ' 

Advisory  C  ommittee  on  Lubricating  Oils 

Advisory  Committee  on  Mineral  Resources 

Ml  phate  (ji  Ammonia  Distribution  Committee 

-Sulphuric  Acid  and  Fertilizers  Trades  Committee 

■Acetylene  Lommitfee 

Imperial  Mineral  Resources  Bureau 

F'otash  Production 

Committee  on  Supplies  of  Sicilian  Sulphur 


Coal  and  Coke 
By  February,   It)].-,,  problems  connected  with  the 
coal  required  attention;  and  two  committees  were  organized  to 
'  Liberal  }\'ar  Bool;.  1917,  p,  157. 


ie  supply  of 


n 


^MSSSWmM^mt^zF.- 


TKADK    AND    TRAN.SI'OR  TA  IION 


1«1 


make  inquiries.  One  was  appointed  hy  the  ITonie  Office,  to  in- 
quire into  conilitions  prevailing;  in  the  coal  tnininj,'  industries, 
with  r.  view  to  promotinj^  such  organization  of  work  and  such 
cooperation  between  employers  and  workmen,  as,  liavinj,'  re;^ard 
for  the  large  number  of  miners  who  are  enlisting  fur  naval  and 
military  service,  will  secure  the  necessary  production  of  coal 
during  the  war.    This  coinmittee  made  several  reports.  ' 

About  the  same  time  as  tlie  above  committee,  the  Board  of 
Trade  formed  a  committee  to  inquire  into  the  causes  of  the  rise 
in  the  retail  price  of  coal  sold  for  domestic  use,  especiallv  to  the 
poorer  classes  of  consumers  in  London  and  other  center>.  This 
committee  held  !.">  meetings,  examined  :',:\  witnesses  and  signed 
its  report  on  March  l'4,  I'.H:..  It  found  a  shortage  of  supplies 
due  to  the  large  number  of  r liners  who  had  enlisted,  the  de- 
crease of  seaborne  traffic  and  congestion  of  traffic  on  the  rail- 
roads. No  definite  "rings"  were  found,  but  conferences  of 
dealers  led  to  concerted  action:  an''  the  arrangement  for  Lon- 
don and  pit  head  prices  was  considered  indefensible.  Recommen- 
dations were  made  for  accumulating  supplies,  lowering  freight 
rates  on  domestic  traffic  and  the  use  of  prize  ships;  and  if  prices 
should  not  return  to  a  reasonable  level,  the  government  should 
consider  assuming  control  of  the  colliery  (jutput,  with  a  view- 
to  regulating  prices  and  distribution  during  the  war.  - 

These  two  committees  appear  to  have  worked  independently 
of  each  other;  and  the  later  results  do  not  indicate  any  plan  for 
coordinating  their  reports. 

The  Chief  Inspector  of  Mines  was  appointed,  with  the  Coal 
Mining  Organization  Committee  and  a  representative  of  tiie  War 
Office  as  :\n  advisory  body,  to  act  as  the  central  court  in  connec- 
tion with  the  scheme  of  colliery  recruiting  courts  established  by 
the  Home  Secretary.  In  March  l.JO.ooo  tnincrs  had  been  en- 
listed: by  May,  IIU".,  the  number  had  increased  to  l'l'O.OOO  ;  and 
recruiting  continued  for  months  in  many  mining  areas.     Prob- 


'  Liberal  Vcar  Book.  1017,  p.  150. 

'Ibid.  |i.  151;  The  I'olilical  Quarterly.  N'o.  6,  pp.  171-173. 


i 


182 


BRITISH    WAR   ADMINISTRATION 


il 


■  J'  i 


ably  300,')00  miners,  oO  per  cent  of  the  men  in  the  mines,  joined 
the  colors.  ' 

In  April,  1015,  another  committee  was  formed  to  consider  and 
advise  on  all  questions  relating  to  the  exportation  of  coal  and 
coke  and  manufactured  fuel  to  foreign  countries.  -  Exports  of 
coal  were  restricted;  and  in  July,  11)15,  a  Price  of  Coal  Limita- 
tion Act  was  passed. 

Still  another  Coal  and  Coke  (Central)  Supplies  Committee 
was  organized,  early  in  February,  li)10,  to  consider  all  questions 
relating  to  the  distribution  of  coal  and  coke  that  may  be  referred 
to  them  from  time  to  time  by  the  Board  of  Trade,  or  submitted 
by  district  coal  and  coke  supplies  committees. ' 

In  June,  1 !)!(!,  a  new  committee  was  formed  to  consider  the 
position  of  tb-  coal  trade  after  the  war,  with  e.special  reference 
to  inter-^ational  competition  and  to  report  what  measures,  if 
any,  are  necessary  to  safeguard  that  position.  ■♦ 

In  November.  l!)l(i,  the  government  took  over  the  South  Wales 
coal  mines:  and  an  interdepartmental  committee  of  three  mem- 
bers was  established,  with  representatives  from  the  Board  of 
Trade,  the  Home  Office  and  the  Admiralty,  to  advi.se  in  regard 
to  directions  to  be  given  under  the  order  for  government  control 
of  these  mines.  '" 

A  Coal  Mines  Department  was  organized  in  the  Board  of 
Trade  with  an  advisory  board.  In  connection  with  the  Depart- 
ment of  Scientific  and  Industrial  Research,  a  Fuel  Research 
Board  has  been  formed;  also  a  Committee  on  Mine  Rescue  Re- 
search, and  a  Committee  on  Peat  Deposits  in  Ireland.  In  March, 
J!' 17,  government  control  was  extended  to  all  coal  fields. 

•^Liberal  Year  Booh.  1917,  p.  150:   The  Political  Quarterly.  So.  7  (19161. 

'  Liberal  Year  Hook-.  1917.  n,  150 
'Ibid..  V.  ISO. 
'  Ibid.,  p.  151. 

uu-,""\T,'""^  //ij/orj'  of  the  Ifar,  .\,  cli.  103,  p.  3J6 ;  Libera!  Year  Booh 
I'll/,  \i.  161. 


w. 


TRADE    AXn    TRANSPORTATION' 


183 


Timber  and  Alcohol 

Early  in  the  war.  the  Office  of  Works  took  over  the  purchase 
of  timber  for  the  War  Office.  On  Noveml)er  24,  I'.Hr.,  a  Com- 
mittee on  Home  Grown  Timber  was  formed  in  the  Hoard  of 
Agriculture,  to  purchase  and  convert  standing  timl)er,  to  supply 
such  timber  to  the  government  departments,  and  generally  to 
make  arrangements  f(ir  the  further  utilizati(;n  of  native  timber 
resources. 

A  Couuitission  Intcrmtionalc  d' Achats  dcs  Rois  was  formed 
early  in  1!>H).  A  War  Cabinet  committee  recommended  a  re- 
duction of  timber  imports.  In  lOlT  a  Timber  Supplies  Depart- 
ment was  created,  which  took  over  the  functions  of  the  Office  of 
Works  and  the  Home  Grown  Timber  Committee.  At  the  end 
of  May,  J!>17,  this  department  was  transferred  from  the  War 
Office  to  the  Board  of  Trade.  ' 

In  December,  lOK!,  an  advisory  committee  was  set  up  to  con- 
sider the  best  means  to  be  adopted  for  securing  adequate  supplies 
of  alcohol  to  meet  the  demand  for  war  purposes  and  the  essen- 
tial industrial  trades.  This  committee  consisted  of  representa- 
tives of  the  distilleries,  rectifiers,  and  methylators.  and  of  the 
Boanl  of  Agriculture,  Board  of  Customs  and  Excise,  Board  of 
Trade,  and  Ministry  of  Munitions.  - 


Textile  Industries 

A  committee  to  consider  the  position  of  the  textile  industries 
after  the  war  was  formed  in  .April,  lUDi,  with  Sir  H.  Briche- 
nough  as  chairman. 

In  .August,  r.nc,  a  central  advisor\-  cdninnttee  fur  luigland 
and  Wales  was  e■^tal)Iishcd,  tn  advise  the  War  nepartment  on 
matters  arising  out  of  the  purchase  and  distribution  of  I-jiglish 
wool.  This  included  representatives  of  agricultural  interests, 
Bradford   merchants,   country   merchants,   s[)inn:rs   and   nianu- 

'  Tlii   War  Ctibinci:  A'  ,'■,)>/  f,:r  the  )'cai   t'.T,    tin    1  iS.l4(i 
'Liberal  )>,.•)   lUtok.  I'M/,  p,  148. 


[  £ 

r 
I. 


Hi  ■ 

km 


II 


184 


BRITISH    WAR    ADMINISTRATION 


facturers  and  several  government  departments — the  Board  of 
Agriculture,  the  Board  of  Trade  and  the  woo!  committee  of  the 
War  Department. '  The  home  woo!  clip  of  lOl'^  was  purchased 
by  the  Army  Contracts  department  of  the  War  Office,  and  this 
policy  was  extended  to  the  Australian  clip  at  the  end  of  1010. 

Further  control  of  the  woolen  and  worsted  industries  was 
announced  by  the  Army  Council  in  September,  I'.HV.  A  board 
of  control  was  established  to  regulate  the  allocation  of  wool, 
tops  and  other  products  and  by-products;  subject  to  the  power  of 
the  Army  Council  to  determine  the  amount  of  raw  wool  to  be 
maintained  in  reserve  for  military  purposes,  and  to  fi.x,  in  con- 
sultation with  the  board,  the  amount  to  be  released  for  civilian 
trade:  and  subject  also  to  the  power  of  the  War  Department  to 
determine  the  terms  and  conditions  of  contracts  for  government 
supiilies.  Directors  of  raw  materials  and  of  wool  textile  pro- 
duction were  to  furnish  information  and  cooperate  with  the 
board  of  control. 

Under  date  of  January  1,  101 '<,  the  War  Office  issued  a  re- 
vised, amended  and  consolidated  order  with  regard  to  woolens 
and  worsted  in  pursuance  of  the  powers  conferred  under  the 
Defense  of  the  Realm  Regulations.  - 

In  August,  1017,  the  Ministry  of  Munitions  took  possession 
of  all  rtax  and  the  flax  crop  in  the  United  Kingdom.  A  Cotton 
Control  Board  was  also  set  up  in  the  summer  of  10 IT. 

Karly  in  1!>1T  a  Central  Leather  Supplies  Advisory  Committee 
was  formed,  merging  several  previous  advisory  committees. 
This  committee  included  representatives  of  the  chief  federa- 
tions of  emi)loyers  and  the  leading  trade  unions  in  the  leather 
trade.    .\  number  of  subcommittees  have  been  organized.  ' 

'  i.ih,-r,il    y,-iir   linnk.   1917,    pp.    161,    165. 

'  Kqiorls    from    (.oTL-^ul    (;cmT.iI    R,.bt.    P.    Skintifr,    in    U.    .S.    Comim-rcc 
Reports.  .\o  237.  October  10,  1917,  and  .\o.  _'5,  January  JO.  1918 
I  lie  II  (If  iiibiiict:  Report  for  the  Year  t'llt   pp    142-146 


^^mK 


TRADE     VXD    TRANSPORTATIOX 


185 


Other  Agencies 

In  addition  to  the  foregoing  the  following  committees,  boards 
and  departments  have  been  established  for  various  lines  of  busi- 
ness: 

Building  Trades  Central  Advisory  Committee 
Committee  on  Production 
Committee  on  Work  of  National  Importance 
Glass  and  Optical  Instruments  Committee 
Industrial  (War  Inquiries)  Board 
Machine  Tool  Committee 
Metals  and  Materials  Economy  Committee 
Passenger  Tratlic  between  United  Kingdom  and  Holland  Com- 
mittee 
Registry  of  Business  Xames  Committee 
Road  Stone  Control  Committee 
Scottish  Shale  Industries  Committee 
Shops  Conmiittee 

Tol)acco  and  Matches  Control  Buartl 
Trade  between  British  Empire  and  Belgium 

At  the  end  of  11»1T,  it  may  be  said  that  the  whole  indu-trv  of 
the  country,  productiiiii.  transport  and  manufacture,  had  lieen 
brought  more  or  less  under  i;i)vcrnnicnt  control.  The  degree  uf 
control  varied  from  complete  owner-hip.  as  with  the  national 
munitions  factories  and  national  shipyards,  t'l  the  fixing  of  max- 
iinuin  output  <uch  as  in  brewing,  or.  as  in  the  case  of  fanning, 
the  enforced  transfer  from  private  to  public  control  in  ca<e  of 
inefficient  production. 


Ships  axd  Smri'iNc. 

Tlh    First   Year 

From  the  beginning  of  the  war  the  problem  of  ships  and  .ship- 
ping was  one  of  vital  importance  to  the  British  Government  and 
the  Briti.-;h  people  in  many  ways.  Ships  were  needed  to  trans- 
port the  armies  and  their  supplies.  They  constituted  the  funda- 
mental ecpiipnient  of  the  navy,  while  the  .\dniiraltv  also  had  di- 


186 


BRITISH    WAR   ADMINISTRATION 


':|!: 


rect  charge  of  the  army  transport  service.  They  further  were 
essential  for  the  economic  life  of  the  people,  as  the  means  of 
importmg  necessary  food  and  other  supplies,  and  for  carrying 
on  the  export  and  domestic  trade  of  the  Empire. 

Government  supervision  over  merchant  shipping  interests 
I  t.ied  one  of  the  principal  functions  of  the  Board  of  Trade; 
and  at  the  head  of  this  department  for  more  than  two  years  of 
the  war  was  a  president  (i\Ir.  Walter  Runciman)  "  who  by  hered- 
ity and  early  business  experience  should  have  been  steeped  in 
shipping  lore,  and  the  country  should  have  been  infinitely  the 
gainer  by  the  circumstance."    Yet  it  was  said  of  him  that 

with  good  intentions,  industrious  and  self-confident,  (he]  entirely  failed 
throughout  to  cope  with  the  issues  raised.  There  were  little  s.gns  of  any 
lead.nK  on  the  part  of  the  Board  of  Trade,  but  there  were  so  many  com- 
mittees-so  many  cooks  each  with  his  finger  in  the  pie-that  it  is  difficult 
to  say  whose  was  really  the  responsibility  for  the  chaos  into  which  shipping 
was  allowed  to  drift.' 

Part  of  the  difficulty,  however,  may  be  ascribed  to  the  fact  that 
the  Board  of  Trade  did  not  have  by  any  means  complete  control 
of  the  situation.  The  Admiralty  and  the  War  Office  exercised 
far-reaching  authority:  and  the  requirements  of  the  military 
and  naval  authorities  did  much  to  complicate  the  situation. 

At  the  outset  of  the  war  an  Admiralty  Transport  Arbitration 
Board  was  organized  to  arrange  terms  for  shipping  requisitioned 
by  the  Adniiralt\-,  whether  for  the  navy  or  for  armv  transport. 
This  i)oar(l  was  a  numerous  bodv  of  representatives  of  various 
shipping  interests,  vith  Lord  Inchapc,  chairman  of  the  Penin- 
sular and  Oricnta  Navigation  Company,  as  president.  The 
widely  scattered  o  .nershij)  of  shipping  'interests  as  compared 
with  railroads  ma>  explain  the  more  cumbersome  organization 
provided  tor  this  work,  as  compared  with  the  Railwav  Execu- 
tive Loinmittee. 

The  danger  of  serious  interference  with  shipping  movements 
by  naval  vessels  of  the  enemy,  before  the  advent  of  the  submarine 
campaign,  was  not  important.     But  before  long  a  seriou,^  short- 

'  The  Times  History  of  the  H'lr,  .\i,  ch.  16'),  p.  78. 


W: 


■-■  i  y   ■I'tfff-  -1 


TRADE   AND   TRANSPORTATION 


is: 


age  in  the  supply  of  vessels  became  evident.  This  may  be  ex- 
plained as  the  result  of  a  coml)ination  of  factors.  Requisitions 
for  government  service  drew  off  many  vessels  from  their  normal 
service :  and  there  was  complaint  of  the  lack  of  organization  for 
the  most  efficient  use  of  vessels  for  these  purposes.  There  was 
delay  in  loading  and  unloading  vessels  at  ports,  on  account  of 
the  congestion  of  traffic,  due  to  the  withdrawal  of  men  for  the 
army,  and  the  regulations  to  prevent  trading  with  the  enemy. 
There  was  an  increase  of  long  voyages,  for  carrying  sugar  from 
distant  parts  of  the  world  to  oft'set  the  loss  of  the  German  supply. 
The  blockade  and  internment  of  German  vessels  increased  the 
demand  for  neutral  vessels. 

There  was  also  a  marked  decrease  in  the  amount  of  new  ship- 
building for  mercantile  purposes.  This  was  caused  in  part  by 
the  enlistment  of  men  in  the  shipyards  for  the  army,  and  later 
for  the  rapidly  expanding  munitions  works.  But  another  factor 
was  the  increased  demand  of  the  Admiralty  for  building  vessels 
for  the  navv.' 


Shipping  Committees 

In  February,  11)1.').  an  Engineering  and  Shipbuilding  Estab- 
lishments Production  Committee  was  formed,  which  served  as 
an  arbitration  tribunal  under  the  Munitions  of  War  Act. 

Early  in  the  ,«econd  year  of  the  war  (November,  lin.'O  a  Ship 
Licensing  Committee  was  appointed,  to  deal  with  licenses  for 
ships  to  trade  between  foreign  ports." 

In  March.  llUd,  Hcensing  was  extended  to  all  ships  of  over 
rtOO  tons  gross  trading  to  and  from  the  United  Kingdom:  and 
licenses  were  refused  for  voyages  to  ports  known  to  Ix'  congested. 

In  November,  liH.'*,  there  was  also  established  a  committee  on 
requisitioning  ships  for  the  carriage  of  foodstuff's.  Mr.  J.  P. 
Whelpley,  M.P.,  was  chairman  of  this  committee,  which  included 
the  three  shipowners  who  had  lieen  advising  the  transport  de- 

'  The  Times  Historx    'f  the  ll'iv.  xi.  cli.  169,  pp   81-84. 
•  Liberal  Yeae  Hook.  I'll?,  pp.  153.  loO. 


I' 


188 


BRITISH    WAR    ADMINISTRATION 


if 


partment  of  the  Admiralty.  The  policy  of  this  committee  was 
to  direct  owners  to  load  their  vessels  in  trade  where  tonnage  was 
especially  wanted.  '■ 

At  the  end  of  the  same  month  a  Port  and  Transit  Committee 
was  formed  to  inquire  into  difficulties  and  congestion  at  harbors, 
ports  and  docks,  to  regulate  the  work  and  coordinate  the  require- 
ments. This  committee  consisted  of  ten  members,  including 
representatives  of  the  Admiralty,  War  Office  and  Board  of  Trade, 
shipping  and  dock  companies  and  the  railways,  with  Lord  In- 
chape  as  chairman.  ^ 

A  Shipping  Control  Committee,  with  broader  powers,  was 
created  on  January  27,  1910:  "to  consider  the  demands  made 
upon  British  merchant  shipping  tonnage  to  meet  the  essential 
requirements  of  the  United  Kingdom  and  the  Allies,  and  to  de- 
cide on  the  allocation  of  the  available  merchant  shipping  tonnage 
with  a  view  to  meeting  these  demands  as  far  as  possible,  having 
regard  to  their  relative  importance."  This  committee  consisted 
ot  only  four  members,  with  Lord  Curzon  as  chairman.  ' 

Another  committee  was  appointed  at  the  Board  of  Trade  for 
the  purpose  of  dealing  otherwise  than  in  the  prize  court  with 
cargo  which,  though  possibly  liable  in  law  to  condemnation  as 
prize,  might  with  advantage  be  released.  ' 

In  March,  1<>10,  still  another  committee  was  formed  at  the 
Foreign  Office  to  inquire  whether  an>-  avoidable  delav  was  caused 
by  the  methods  for  dealing  with  ships  and  cargoes  brought  into 
British  ports  under  the  Order  in  Council  of  .March  11,  iDl,-,.  and 
to  make  such  general  recommendations  as  they  may  think  fit 
for  improving  such  methods. ' 

Later  in  March  a  committee  was  established  to  consider  the 
position  of  the  shipping  and  shipbuilding  industries  after  the  war, 
especially  in  relation  to  international  competition.  '• 


'  Liberal  i'car  Book 
169.  p.  09. 

'Liberal  year  Book,  1917.  p.  157. 
'  Ibid.,  p.  160. 
'Ibid.,  p,  158. 
'  'bid.,  p.  160. 
•  Ibid.,  p,  160. 


1917.  p.  159;  The  Times  History  of  the  War,  xi,  ch. 


TRADE    AND   TRANSPORTATION 


189 


Other  committees  were  formed  to  deal  with  diverted  cargoes, 
delays  in  unloading,  congestion  at  ports,  and  the  detention  of 
neutral  ships. 

The  restriction  of  imports  by  means  of  licenses  begun  in  191G 
also  served  to  regulate  the  use  of  shipping.  This  was  first  ap- 
plied to  paper  and  wood  pulp,  by  the  appointment  of  a  Royal 
Commission,  in  February,  and  was  later  extended  to  other  ar- 
ticles, special  commissions  or  committees  being  formed  for  each 
trade.  ' 

The  Shipping  Ministry 

Difficulties  with  shipping,  however,  continued:  and  were  ac- 
centuated bv  the  activities  of  enemy  submarines,  so  that  the  need 
for  further  measures  to  promote  shipbuilding  and  to  secure  a 
more  eiifective  organization  of  available  shipping  facilities  be- 
came more  and  more  pressing.  On  the  formation  of  the  Lloyd 
George  Ministry  in  December,  lOKi,  the  appointment  of  a  Ship- 
ping Controller  was  announced;  and  the  New  Ministries  Act 
passed  later  in  the  same  month  made  statutor)  provision  for  a 
new  Ministry  of  Shipping.  ' 

The  act  authorized  the  appoirtm.ent  of  a  Minister  of  Shipping 
under  the  title  of  Shipping  Controller  for  the  purpose  of  organ- 
izing and  mamtaining  the  supply  of  shipping  in  the  national  in- 
terest in  connection  with  the  present  war,  with  the  usual  provi- 
sions for  officers,  salaries  and  expenses,  enabling  the  Minister 
and  secretaries  to  sit  in  the  House  of  Commons,  an<l  providing 
for  the  cessation  of  the  Ministry  after  the  close  of  the  war. 

Xo  attempt  wa>  made  in  the  act  to  define  the  functions  .if  th: 
new  Ministry:  but  these  were  to  be  transferred  or  conferred  by 
Order  in  Council.     In  the  words  of  the  statute : 

It  shall  be  the  duty  of  the  Shipping  Controller  to  control  and  regulate  air- 
shipping  available  for  the  needs  of  the  country  in  such  manner  as  to  make 
the  best  use  thereof;  having  regard  to  the  circumstances  of  the  time,  and  tri 
take  such  st.ps  as  he  thinks  best  for  providing  an  el'iicient  supply  of  shipping. 
and  for  these  purposes  he  shall  have  such  powers  and  duties  of  any  govern- 
ment department  or  authority,  whether  conferr  d  by  -tatute  or  otherwise,  as 

■  Tlw  Times  History  of  the  ll'ar,  xi,  ch.  169.  p.  92. 
•  6  and  7  Geo.  V,  cli.  68. 


U      ! 


I  -. : 


190 


BRITISH    WAR   ADMINISTRATION 


His  Majesty  may  by  Order  in  Council  transfer  to  him,  or  authorize  him 
to  exercise  or  perform  concurrently  with  or  in  consultation  with  the  govern- 
ment ilcpartment  or  authority  concerned,  and  also  such  further  powers  as 
may  be  conferred  on  him  by  regulations  under  the  Defense  o."  the  Kcalm 
Consolidation  Act,  1914,  and  regulations  may  be  made  under  that  act  ac- 
cordingly. 

Joseph  Maclay,  a  prominent  shipowner,  was  appointed  as  the 
first  Shipping  Controller.  He  preferred  not  to  hold  a  seat  in 
the  House  of  Commons ;  hut  was  represented  there  hy  a  parlia- 
mentary secretary.  A  Director  of  Transports  and  Shipping  and 
other  officers  and  employes  were  also  appointed.  There  was  fur- 
ther formed,  in  December,  1910,  a  -Merchant  Shipbuilding  Com- 
mittee, of  seven  meml^ers,  to  advise  the  Shipping  Controller  on 
the  administration  o*  a  shipbuilding  program.  The  president 
and  secretary  of  the  Shipbuilding  Employers'  Federation  were 
chairman  and  secretary  of  this  coinmittce.  A  Shipbuilding  Con- 
struction Committee  was  also  appointed.  An  Order  in  Council  of 
January  U,  1!)1T.  required  official  permission  to  charter  neutral 
vessels;  and  an  Interallied  Chartering  i:xecutive  was  provided, 
to  ensure  that  all  charters  of  foreign  vessels  by  private  firms 
were  in  the  interest  of  the  Allied  nations.  ' 

Other  committees  have  been  appointed  on  a  standard  uniform 
for  the  mercantile  marine  and  on  tonnage  priority.  A  separate 
branch  of  the  Shipping  Ministry  was  formed  for  the  coastmg 
trade,  which  was  brought  under  special  control. 

In  February,  IDIT,  Sir  Edward  Carson.  First  Lord  of  the 
Admiralty,  announced  that  the  Transport  Depariment,  except 
naval  transport  and  the  duty  of  naval  transport  to  the  army,  had 
been  taken  over  by  the  Shipping  Controller.  The  advisorv  coni- 
inittee  to  the  Transport  Department  had  resigned  shortly  aftor 
the  appointment  of  the  Shipping  Controller.  The  responsibility 
for  merchant  tonnage  constri:jtion  was  also  transferred  to  the 
Shipping  Controller:  but  in  May,  when  Sir  Eric  Geddes  was  ap- 
pointed as  Controller  of  the  Navy,  this  reverted  to  the  Admiralty. 

Changes  were  made  in  the  loading  rules  perinitting  an  increase 
from  lOO  to  ].")()  tons  for  each  ton  of  registered  shipping.     Steps 

'  The  Times  History  of  the  War,  xi,  ch.  169,  p.  103. 


[i  5 


it'^.i"»'*>:-''>>- J  iS,^r4i;*;ir-/..v<'.^  ..v,,-_  t■.-^i.^■■_  ■  £/i,/.»'j^.-.  ;v..i 


TRADE   AND   TRANSPORTATION 


191 


were  taken  to  expedite  the  building  of  ships  under  construction. 
Plans  lor  the  construction  of  standardized  cargo  vessels  were 
formulated  and  put  under  way.  ' 

As  the  result  of  the  shipbuilding  plans,  merchant  shipbuild- 
ing, which  had  fallen  oft  largely  in  the  first  years  of  the  war, 
was  largeU  increased,  though  for  some  time  not  enough  to  ifset 
the  losses  from  the  increased  suljmarine  activity  which  begati 
early  in  1917.  Merchant  shipbuilding  had  declined  from  l,9r.».- 
000  tons  in  I'Jl-'J  to  .542.000  tons  in  I'.tlO.  and  increased  to 
l,lti;3,000  tons  in  1017.  Competition  from  naval  shipbuilding 
was  still  a  factor;  but  the  total  of  Iwth  naval  and  merchant 
shipbuilding  for  11>17  reached  the  record. 

Although  considerable  improvement  was  made,  the  shipping 
problems  were  not  entirely  solved.  There  has  l)een  some  criti- 
cism of  the  shipping  ministers.  Joseph  Maclay  was  a  shipowner 
but  not  a  shipbuilder;  and  Lord  Pirrie.  who  succeeded  him. 
while  a  big  business  man  at  the  head  of  a  firm  which  built  large 
liners,  had  no  familiarity  with  the  building  of  tramp  cargo  vessels, 
for  which  the  need  was  most  pressing.  It  has  also  been  urged 
that  the  Admiralty  control  over  shipping  had  made  mistakes.  - 

On  the  other  hand  more  effective  use  has  been  made  of  ship- 
ping facilities.  At  the  ;nd  of  I'.Ufi  less  than  half  the  British 
merchant  tonnage  had  been  requisitioned.  A  large  pr.iportion 
of  tramp  vessels  had  been  taken  over,  Iiut  only  a  ]iart  of  the  pas- 
senger liners.  In  a  few  months  practically  all  of  the  liriti-h 
ocean  going  marine  had  been  brought  under  n.'quisition,  includ- 
ing nearly  all  the  tramps  and  all  the  ocean  liner-.  X'essels  were 
withdrawn  from  the  longer  routes  and  transferred  to  shorter 
voyages.  Special  arrangements,  complicated  and  transitory,  '•  ere 
made  witli  reference  to  neutral  tonnage. 

The  Port  and  Transit  Executive  Committee  was  housed  witli 
the  Shipping  Ministry,  and  worked  in  cooperation  with  the  Di- 
rector of  Ports  of  the  new  Ministry. 

In  Februarv,  lltH,  the  .secretaries  of  the  Shipwright-,'  Society 


!lnd..  pp.  98.  101.  103- 

Thi-  Xcw  Stjtesmaii.  March  23,  1918. 


Si 

II 


t  i 


192 


BRITISH    WAR    ADMINISTRATION 


and  of  the  Boilermakers'  Society  were  appointed  as  labor  ad- 
visers to  the  Shipping  Ministry.  A  .Merchant  Marine  Concilia- 
tion Committee  was  formed  t„  review  lahor  conditions  on  mer- 
chant ships;  and  a  National  Wage  Board  was  set  up  to  establish  a 
standard  rate  of  wages  for  seamen.  ' 


M 


After  the  War  Committees 
As  early  as  July.  1!M.-,.  a  subcommittee  oi  the  Advisorv  Com- 
mittee to  the  Board  of  Trade  on  Commercial  Intelligence  was 
appointed  with  respect  to  measures   for  securing  the  position 
after  the  war,  of  certain  branches  of  Briti.sh  industry      This 
subcommittee,  of  five  members,  made  a  report  to  the  Advisorv 
Committee  on  January  11.  l!n<!.  which  was  adopted  bv  the  com'- 
ni.ttee.  presented  to  the  Boanl  of  Trade  and  published"  for  infor- 
mation.    This  report  dealt  with  paper  and  printing,  stationerv 
jewelry,  cutlery,  fancy  leather  goods,  brushes  and  hardware-  in- 
dustrial  research   and   training;  copvright.   patents   and    trade- 
marks:  transport  facilities,  financial  assistance,  tra.lc  exhibitions 
the  establishment  of  a  ministry  of  commerce,  and  tariff  protec- 
tion, with  reservations  by  one  member  as  to  the  tariff.  ' 

In  the  sprin-  and  early  summer  of  ]!.l.;  a  series  of  new  com- 
mittee. wa<  appointed  to  consider  the  position  of  particular  trades 
alter  the  war.  especially  in  relation  to  international  com,,ctition 
and  to  report  measures  to  safeguard  that  jiosition.     These  in- 
cluded committees  on   shij,ping  and   shipbuilding    (March    '7) 
electrical  trades   ( .\pril  JT).  te.xtile  industries   (April  I'M,  coal 
frade  (June  2),  the  engineering  and  iron  and  steel  trades  (  |ulv) 
and  nonferrous  metals  trades.  "     '    ' 


Allied  Economic  Conference 
Meanwhile  on  June  14-17,  V.m,  there  ha<l  been  held  at  Paris 
the  well  known  Economic  Conference  of  the  .Allies  for  the  pur- 

'  Tlicllcr  CMnct:  Report  for  the  Year  l'.>n,  ,,p,  107.)  15 
I'liilniwnUarv  fafcrs.  Cd   8181 
!.ilH-n,l  Vccir  Bpo'c,  1917,  pp.  151.  \52.  15J,  160.  161. 


jT  *■  rUii ' 


•  ■"^■'vxjf.? 


,s:-..v....>..t 


•v:^:^:' 


TRADE    AND    TRANSPOR  lATION 


193 


pose  (if  pruposinp  to  their  respectivt-  K<^^'^rnments  appropriate 
measures  for  realizinjj  solitlarity  of  vte\v<.  The  recoiiitnenda- 
ti(.ns  of  this  conference  covered:  i  u )  measures  fiir  the  war 
jjeriod;  (b)  transitory  measures  for  the  period  of  reconstruc- 
tion: and  (c)  itermanent  measures  for  mutual  assistance  and 
collahoration  among  the  Alhes.  [n  the  third  si"""!'  ^^ce'  in- 
chided  :  (1)  steps  to  render  the  AlHes  independent  of  enemy 
countries  as  ref^ards  raw  materials  and  essential  manufactures, 
such  as  {jovernment  enterprises,  fjovernment  aid  for  scientitic  and 
industrial  research,  customs  duties,  and  prohibitions:  {-2}  the 
improvement  of  transport  and  communication  facilities:  {'.'>) 
meetings  of  technical  delegates  for  the  assimilation  of  laws  relat- 
ing to  patents,  trade-marks  and  copyrights:  and  (4)  that  the 
governments  should  take  necessary  steps  without  delay.  Thest 
recommendations  were  general  and  indefinite  in  character:  am. 
had  of  course  no  binding  force  on  any  of  the  governments.  ' 

Following  the  Fxonomic  Conference  of  the  Allies  two  new 
T^ritish  committees  of  a  general  character  were  appointed   ir 
.-.  lOlO,  on  trade  conditions  after  the  war.    One  of  the-^e  wa- 
consider  the  commercial  and  industrial  policy  t(j  Ik-  ado[)tc'i 
after  the  war,  with  special  refi  to  the  conclusi(jns  of  'Hr 

Allied  Economic  Conference,      ii.  'ttee  consisted  of  IT 

members,  with  Lord  Balfour  of  Burlei,,       -  chairman.  ■ 

Financial  Facilities  for  Trade 

In  the  same  month  another  committee  was  appr,inted  1  iie 
Board  of  Trade  to  consider  the  best  means  of  meeting  the  needs 
of  British  firms  after  the  war  as  regards  financial  facilities  for 
trade,  particularly  w  ith  reference  to  large  overseas  contracts,  and 
to  prepare  a  detailed  scheme  for  that  purjiose.  This  committee 
consisted  oi  li'  members,  with  Lord  Farringdon  as  chainnan. 

This  committee  submitted  a  report  on  August  ;)1,  HHtJ,  recom- 
mending the  formation  of  a  new  British  Trade  Bank,  with  a  cap- 

'  rarliamciilarv  Pufers.  1916.  Cd.  H271. 

'  Liberal  year' Book.  1917,  p.  162;  U.  S.  Ccmmerce  Reports,  No.  54,  March 
6,  1918,  p.  854. 


i 


10, 


BRITISH    WAR    ADMINISTRATION 


f      - 


ital  of  £10,000.000,  which  should  open  accounts  for  parties  pro- 
posing to  use  Its  overseas  facilities;  establish  forci^-n  exchange 
credit  departments  and  information  bureau ;  make  banking  agencv 
arrangements  with  existing  colonial  or  Hri'ish  foreign  hanks'- 
and  act  as  agent  of  the  government  in  extend.ig  financial  aid  to' 
key  industries.  This  new  bank  should  not  accept  deposits  at  call 
or  on  short  notice,  and  shouid  not  interfere  with  anv  business  for 
which  existing  banks  ppA-ided  facilities.  ' 

A  petition,  deed  of  settiement  and  charter  for  a  British  Trade 
Corporation  were  jirinted  in  the  Parliamentary  Papers  for  1!)17.  ^' 

Other  Board  of  Trade  committees  formed  to  consider  after  the 
war  problems  included  those,  on  Belgian  trade,  cotton  gr<,win- 
within  the  Empire,  electric  power  supply,  prewar  contracts,  and 
trade  relations  after  the  war.  ■' 

Scientific  and  Industrial  Research 

In  July.  1015.  a  scheme  for  the  organization  and  development 
ot  scientific  and  industrial  research  was  presented;  and  in  ac- 
cordance with  this  .plan  a  Department  of  Scientific  and  Industrial 
Kesearch  was  established,  under  a  committee  of  the  Privy 
L  ouncil.  with  an  Advisory  Council.  * 

To  the  new  department  there  has  been  transferred  from  the 
Royai  Society  the  property  of  the  xX'ational  Phvsical  Laboratory 
and  there  has  been  created  an  Imperial  Trust  for  the  encourage- 
ment ut  scientific  and  industrial  research,  which  holds  on  behalf 
ot  the  tlepartment  the  sum  of  £1,000.000  voted  bv  Parliament 
tor  this  purpose.  The  Advisory  Council  has  recommended  that 
this  sht.uld  be  used  as  grants  in  aid  to  cooperative  research  asso- 
ciations to  be  formed  by  the  firms  in  any  industry;  and  progress 

J'arlmmnUiiry  I'apcrs.  1917.  Cd.  8567. 
L.    S.    C  iiiiniicrCi'  Rct'oits    .No     i4     MttcIi   rt     ioiq       -ri 
fo^r  I<r,.i.,  Tra.,.  wu^  B^i.i.™,  ^,^!:['^  ^  ^^J^  Tl'^ircol:'. 
Msud  of    l.rcc  rcprc^ont.it.ves  of  tlic   lorciK'n  Office,  thr-.e  „f  the  BoarrI  nf 
1   adc,  ami  s,x  rcprosentnis  Hritisl,  oonimercial  and  f  nanc  il  inte  ests      U   S 
Comm-rce  Nrforts.  No.  JOS,  SeptomlH-r  6,  1917    p   89'  '"'"est,.     L.  b. 

/  arliaiiu-iitary  Papers,  1915.  Cd.  8005. 


TRADE    AND    TRANSPORTATION 


195 


has  been  made  towards  the  formation  di  such  associations,  tor 
cotton  and  other  industries.  For  some  fields  which  can  not  l)e 
covereil  b\  research  associations,  research  iiivestif^ations  will  he 
carried  on  by  agencies  established  as  part  of  the  department, 
such  as  the  Fuel  Research  Board.  ' 

At  the  end  of  lltlT,  the  following  lx)ard-;  and  committees 
had  been  established  by  the  department  of  scientific  and  indus- 
trial research : 


Cold  Storage  Research  Board 

Standing  Committees  ri    Fngineering.    Metallurgy,    Mining. 

and  Glass  and  Opt-:al  Instruments 
Joint  Standing  Committee  on  Illuminating  Fngineering 
Mine  Rescue  Apparatus  Research  Committee 
Abrasives  and  Polishing  Powders  Research  Committee 
Food  Research  Committee 
Building  Materials  Research  Committee 
Flectrical  Research  Committee 
Committee  for  Research  on  Vitrous  Compounds,  and  Cements 

for  Lenses  and  Prisms 
Tin  and  Tungsten  Research  Board 
Lubricants  and  Lubricating  Inquiry  Committee 
Chemistry  of  Lubricants  SulKommittve 
Zinc  and  Copper  Research  and  Inquiry  Committee 
Irish  Peat  Inquiry  Committee 
Provisional  Committee  on  Research  for  the  Woi^l  and  Worsted 

Industries 
Provisional  Committee  for  the  hit 'rnal  Combustion  Engine 

Industrv " 


A  report  on  the  resources  and  production  of  iron  and  other 
metalliferous  ores  has  been  published.  ' 

OvERSF.A.s  Trade  Intelligence  Department 

Farlv  in  September,  r.HT,  plans  for  a  new  Overseas  Trade  In- 
telligence Department  were  announced  1)y  the  Board  of  Trade 
and  the  Foreign  Office.     lioth  of  these  government  departments 

■  U.  S.  Commerce  Re     rts.  \  •>  22>y  Scmcmlar  27.  1917.  p.  1172. 

=  Ibid..  \o.  54.  Marcl     .,  1918.  d,  857. 

'  Report  for  1916-17,  .'arlia-ncntarx  I'ap.n.  1917,  CJ.  8718 


19G 


BRITISH    WAR    ADMINISTRATION 


■-\ 


r-t  1 


had  been  considering  plan-  for  developing  the  official  arrange- 
ments for  commercial  intelligence,  which  had  hitherto  been  di- 
vided between  thcni.  A  committee  appointed  in  January,  litlT, 
representing  both  departments,  agreed  that  the  appointment  of 
commercial  attaches  in  foreign  countries  should  continue  to  be 
in  the  hands  of  the  Foreign  Office:  but  did  not  agree  whether  the 
collation  ard  distribution  of  commercial  intelligence  from  for- 
eign countries  should  l)o  performed  by  the  I>oard  of  Trade  or  the 
Foreign  Office.  To  meet  this  difficulty  it  was  agreed  to  estab- 
lish a  new  ami  enlarged  joint  ('epartment  on  commercial  intelli- 
gence, under  the  general  direction  of  an  additional  parliamentary 
secretary,  who  should  re])resent  both  the  Board  of  Trade  and  the 
Foreign  Office.  The  new  (lei)artment  should  absorb  the  com- 
mercial intelligence  department  of  the  Board  of  Trade,  and  the 
foreign  trade  department  of  t.-e  Foreign  Office;  and  also  take 
over  the  intelligence  and  statistical  sections  of  the  War  Trade 
Department.  It  should  deal  both  with  the  commercial  attaches 
in  foroig'i  countries,  appointed  by  the  Foreign  Office,  and  with 
the  trade  conmiissioners  within  the  F.mpire,  nppointed  by  the 
Board  of  Trade;  and  it  is  expected  that  there  will  be  interchanges 
of  staff  bet\vc;.'n  the  different  services.  .An  advisory  committee  of 
business  men  is  included  in  the  plans  for  the  new  department. 

It  is  e.\i)ected  by  the  coordination  secured  through  this  Over- 
seas Trade  Intelligence  Deiiartment  to  eliminate  i)verlapping  and 
to  secrre  more  efficient  results.  ' 

Sir  .\rthur  Steel-Maitland,  M.P.,  has  been  named  as  head  of 
thi~  department,  which  has  been  organized  with  three  main  di- 
visions :  an  overseas  division,  a  United  Kingdom  division,  and 
an  exhibitions  division. 

'.Memorandum  of  the  Hoard  of  Trade  and  I'"orciRn  Office,  with  respect 
to  tlic  future  orgatiizatioii  of  t'ommercial  IntelhRence.  I'lirliniiicntivy 
I'api-rs.  1917,  Cd.  8716:  U.  S.  Commcrc-  Rcforts.  No.  .'88,  September  ."), 
1917:  .\o  3,  January  4,  1918;  The  II  ar  Cabinet:  Report  for  the  Year  I'Jn, 
lip.  150-151. 


ti4Hi;.- 


CHAPTER  X 


Agriculture  and  Food  Control 

In  Former  Wars 

The  present  war  has  seen  a  vast  expansion  of  government 
regulation  and  direct  control  of  food  supplies,  far  beyond  that 
of  any  previous  time.     But  it  will  be  o*'  interest  to  note  briefly 
some  examples  of  food  regulation  in  previous  wars,  as  prece- . 
dents  for  the  measures  of  the  present  contest. 

In  the  war  with  Spain,  in  the  reign  of  Elizabeth,  the  export  of 
grain,  and  for  a  time  the  export  of  provisions,  was  prohibited. 
During  the  Seven  Years  War,  in  the  eighteenth  century,  the  ex- 
port of  grain,  meal,  flour,  bread  and  starch  was  prohibited: 
and  this  prohibition  was  later  extended  to  beef,  pork,  bacon  .nd 
other  victuals.  Duties  on  imported  grain  and  flour  \vere  dis- 
continued ;  and  the  making  of  wines  and  .spirits  from  grain  was 
prohibited.  In  the  war  with  France  at  the  end  of  the  eighteenth 
century,  the  export  of  provisions  and  fc  jd  was  restricted,  and 
the  importation  of  grain  and  provisions  was  encouraged ;  grain 
supplies  were  conserved  by  prohibiting  its  use  for  making  wines 
and  spirits,  starch,  hair  powder  and  blue;  and  bakers  were  re- 
quired to  use  a  larger  proportion  of  bran  or  to  mix  other  grains 
or  potatoes  with  wheat.  ' 

Most  cf  these  measures  '  „ve  been  repeated  in  the  present  war; 
and  in  addition  many  other  steps  have  lieen  taken,  inchuling 
government  purchase  and  direct  control  ol  important  articles 
nf  food,  the  intensive  regulation  of  the  kinds  and  (iuantitie>  oi 
different  foods  to  be  used,  and  the  fixing  of  prices.  In  OMincc- 
tion  with  these  measures,  as  i-.-.  dealing  with  other  prnMcnis, 
manv  new  administrative  agencies  and  advisory  committees  have 
been  established;  and  after  a  considerable  period  of  uncertainty. 


Sec  Chapter  1. 


197 


198 


BRITISH    WAR    ADMINISTRATION 


•A  5 


and  sometimes  of  conflict  between  different  agencies,  a  more 
centralized  system  of  regulation  was  organized  under  a  new  Min- 
istry of  Food  Control. 

First  Measures 

At  the  outbreak  of  war,  the  actual  and  anticipated  shortage 
of  food  supplies  led  to  sharp  and  rapid  increase  of  prices.  A 
Cabinet  committee  on  food  supplies  was  organized,  with  the 
Home  Secretary  as  chairman.  On  August  5,  this  committee 
met  representatives  of  the  Grocers'  Federation  and  companies 
and  provided  for  a  standing  committee  of  these  retail  trades,  to 
advise  as  to  ma.ximum  retail  prices.  Lists  of  prices  were 
promptly  issued :  and  in  a  few  days  anic  purchases  had  about 
ceased.  The  Cabinet  committee  i  o  obtained  returns  of  the 
stocks  of  all  foodstuffs  in  the  country,  and  made  arrangements 
for  the  periodical  collection  of  this  information.  ' 

There  was  also  appointed  in  August,  by  the  president  of  the 
Board  of  Agriculture  and  Fisheries,  a  consultative  committee  to 
consider  matters  affecting  agricultural  interests  referred  to  them 
by  the  Ixjard.  ■ 

Still  further  there  was  organized  in  .August  a  Coimiiission 
Intcrnatiouah'  dc  Raviiaillcmcnt.  as  the  result  of  an  agreement 
with  the  French  Government,  to  assist  in  the  purchase  of  food 
supplies,  nuuiitions  of  war,  and  field  equipment.  The  scope  of 
this  commission  was  later  extended  to  cover  purchases  for  other 
.Allied  Goveriunents.  .Applications  for  permission  to  export 
goods  intended  for  Allied  Governments  were  dealt  with  by  this 
body,  which  included  representatives  from  the  I'oreign  Office, 
.Admiralty,  War  Office,  the  ("ommittce  on  Imperial  DefenNe, 
Board  nt  Trade,  Board  of  .\griculture  and  Ministr.  of  .Muni- 
tions, with  delegates  from  .Allied  (jovernment'^.  ' 

M.xpurtatiiMi  (if  fodd  was  prohibited;  and  after  .i  few  months 
the  prohibition  was  extended  to  feeding  stuffs  for  animals.  ' 

'  T7i,-  liduihurqli  Rrrii"i'.  vol.  AM,  p.  108. 

'  r.ihcral  ),;ir  lhu>k.  1917.  p.  148. 

'  Ibni..  p.  161. 

'  VVii'  lidiiihtnuh  A'rri,-;i'.  vol.  4(i,?. 


AGRICULTURE    AND    FOOD    CONTROL 


199 


A  special  problem  for  which  more  active  measures  seemed 
necessary  was  the  sup])ly  of  sugar.  Two-thirds  of  the  sugar  used 
in  Great  Britain  came  in  normal  times  from  Germany  and  Aus- 
tria. Arrangements  were  promptly  made  for  the  purchase  of 
sugar  by  the  government.  A  Royal  Commission  on  sugar  sup- 
plies was  formed,  "  to  inquire  into  the  supply  of  sugar  in  the 
United  Kingdom,  to  purchase,  sell  and  control  delivery  of  sugpr 
on  behalf  of  His  Majesty's  Government,  and  generally  to  take 
such  steps  as  may  seem  desirable  tor  maintaining  the  supply."  ' 
On  the  recommendation  of  the  commission,  extensive  purchases 
{ !)00, ()()()  tons)  of  cane  sugar  were  made  at  ])rices  much  higher 
than  those  olitaining  before  the  war.  In  CJctdber,  it  was  found 
that  the  government  had  bought  at  higher  prices  than  those  which 
suijsequently  ruled  in  the  open  market.  The  importation  of  sugar 
was  then  prohibited,  partly  to  prevent  the  indirect  purchase  of 
enemy  sugar,  and  partly  to  protect  the  government  supjilx .  The 
latter  was  sold  to  refiners  at  prices  which  protected  the  gmern- 
ment  from  loss,  and  at  the  same  time  made  possilile  reasonable 
retail  price? 

In  the  light  of  later  events,  the  government  action  seemed  for 
a  time  an  unfortunate  speculation.  But  if  nothing  had  been  done 
the  consecpiences  might  have  been  much  more  serious :  and  in 
view  of  the  uncertainty  at  the  commencement  of  the  war  the 
action  taken  seemed  to  have  been  warranted.  ■ 

The  Cabinet  committee  on  food  supplies  also  arranged  from 
an  early  period  in  the  war,  for  repeated  purchases  of  large  quan- 
tities of  wheat,  and  their  gradual  sale  in  the  country.  '  In  March, 
r.Uri,  a  committee  was  appointed  to  make  arrangements,  in  co- 
operation with  the  government  of  India,  tor  the  purchase,  ship- 
nient  and  disposal  of  Indian  wheat.  * 

Purchases  of  sugar  are  stated  to  have  involved  an  expenditure 
of  £1S,0()(),000;  and  the  expenditures  for  the  fiscal  year  l'.Ul-l,"> 

'  Uhi-ra!  Vrar  Hook-.  1017,  p.  KiO.  Thi>;  n 
as  Scplcmbt-r  11.  1014  The  liilinbiiri/li  A',-; 
August  20. 

"  The  Tohliciil  Qu,iilerl\\  i,  p.  1H«;  Xo.  6  (1915  >.  p.  81 

•  The   Times  History  of  the  It'ur.  \.  cli.  l(i.5.  p.  3i2. 

*  The  EdinburijL  Keview.  vol.  46J. 


till'  liatc  liir  tlli^  ciiniiiiissidn 
(Mil.  4(1.5 1   sjivt's  llu   (late  ai- 


200 


BRITISH    WAR   ADMINISTRATION 


included  a  total  of  £2S.400.O00  "  invested  "  in  the  purchase  of 
wheat,  meal,  sugar,  and  certain  other  commodities.  ' 

In  April,  1!>1,"),  the  government  decided  not  to  make  any  fur- 
ther purchases  of  wheat,  on  the  ground  that  these  operations  had 
had  the  eiTect  of  restricting  neutral  trade.  - 


^41 


^Ui 


Food  Production  and  Food  Prices  Committees 

On  the  advent  of  the  Coalition  Cabinet,  another  stage,  involv- 
ing a  change  of  direction  in  go%-ernment  action  relating  to  food 
supplies,  was  begun  by  the  appointment,  in  June,  li)!"),  of  a 
series  of  Food  Production  Committees,  to  consider  what  steps 
should  be  taken  for  the  purpose  of  maintaining  and,  if  possible, 
increasing  the  production  of  food.  The  committee  for  Eng- 
land and  Wales,  .inpointed  by  Lord  Selborne,  president  of  the 
Board  of  AgricuK'i  e  and  Fisheries,  was  said  to  have  been  an 
exceptionally  stroir,  body  of  experts.  It  included  Lord  Milner,  as 
chairman:  L<ird  Inchape,  an  authority  on  shipping  and  freights; 
.\.  D.  Hull,  Rowland  Prothero  and  Edward  Strutt— versed  in 
practical  agricultural  management  and  research;  Charles  Field- 
ing, a  i)usiness  man  who  had  made  a  special  study  of  food  supply; 
*^ir  II.  \-erney  and  F.  D.  Acland.  .M.P.,  representing  the 
Board  of  Agriculture:  and  J.  A,  Seldon.  representing  the  in- 
terests (if  labor.  Similar  committees  were  appointed  for  Scot- 
land (  ^  members)  and  for  Ireland  (  17  members),  the  latter  hav- 
ing as  chairman  T,  W.  Russell,  the  well  known  vice  president  nf 
the  Irish  Department  of  Agriculture  and  Technical  Instruction.  ' 

In  July  the  committee  for  I'.nglaiul  and  Wales  presented  an 
interim  report,  recommending  the  encouragement  of  wheat  rais- 
ing by  guaranteeing  a  minimum  price  of  4.">  shillings  a  (piarter 
for  four  years  following  the  war;  and  that  each  county  council 
should  appoint  a  small  comniittee  for  each  rural  district  to  co- 
operate  with   the    I'.oard  of   .Agriculture   in  securing   increased 

'  Thr  I'oliticiil  (hiart,-rl\\  Xo.  6   (191."i,  p    \h7 

'  I  lu-   limes   ''ist.try  of  //,,■  Har.  x.  lii'  lr,,f,  p.  HZ 

■  ll'irl..  p.  Kil  ,  Liberal  W'iir  Honk.  in]-,  p.  154. 


AGRIClLTLkl-:    AM)    F(K)I>    CONTROI, 


201 


acreage  of  land  under  ciiltiv.-'tinn.  The  final  report  <>i  tlii-  com- 
mittee, on  October  l."i.  I'.il.".,  dealt  with  the  nipply  of  fertilizers, 
feeding  stuffs,  agricultural  lahor  and  the  cultivation  of  \v,-.-,ie 
land  near  cities  and  town';. 

The  report  of  the  committee  for  Ireland  favored  a  guaranteed 
ininimum  price  for  oat-  and  wheat,  for  one  year  only:  L.an-  to 
small  holders  for  imjilement-  and  machinery:  and  the  prohihi- 
tion  of  the  exjiort  of  artificial  manure-.  >]T  Horace  i'lunkett. 
in  a  minority  report,  urged  the  need  for  organization.  - 

The  report  of  the  committee  f  ir  .^c^tland  did  not  recommend  a 
guaranteed  minimum  price:  hut  ur;",-d  the  imijortance  of  artificial 
fertilizer^  and  the  rai-ing  of  more  pi^'-  and  calve-:  dealt  v.itli 
the  labor  problem;  and  favored  the  organizati'^n  o'f  di-irirt  ( om- 
mittees  of  the  county  council-.  The  .^cotch  JJoard  of  .\gr;culture 
carried  on  an  active  caiTipaig:i  in  -upport  of  thi-  committee's 
report  ^ 

.After  considering  the-e  rep-n-.  the  i^overnment  deci'ied  not 
to  accept  the  jiropo-al-  for  guaranteeing  minimum  j;rice-.  I'ro- 
vision  was  made  f  r  appointing  agricultural  war  comnnttee-  by 
the  county  couticil-:  but  a  sy-tematic  plan  for  <'  -trict  commit- 
tees was  not  fallowed  uj).  ' 

In  July.  T.M."i.  another  departmental  cmmittee  <  f  the  H'.ard  ot 
Agriculture  and  Fi-!ierie-  \\a-  aj^pointed  to-  con-ider  what  -te[r- 
could  be  taken  to  ])n)m<'te  the  -ettlem.ent  and  emjJ'  \ment  nn  the 
land  in  England  and  Wale-  of  --.Idicr-  and  -ail-r-.  whether  di- 
abled  or  otherwi-e.  on  ■li-char^e  ir'  m  the  naw  <.r  arm-,  Thi- 
committee  cou-i-ted  of  ten  member-.  incIudiTi;;  f->''  nierr/Ser-  of 
Parliament,  with  .Mr,  11,  H.ih'u-t  a-  liia'TmaT^ 

Two  rep'iri-  were  pre-eiiteo.  Tlu-  {.un]  rej)'  n  r'.-comrnt-iided 
government  i:urcha-e  .i:  1  lea-e  '.f  ];::im.  \,,  he  re;;t'-'l  t'-  leT.ani-; 
and  that  c.iunt\  council-  -li-  ul'l  br  eticura^'ed  lo  franie  ihe:r 
small  hokling-  j).  licy  o-n  the  !me-  -if  -ettlement  n,  c  l','i;:e-      The 


'  rar!h:r,!-;!tjr\    f'jfcrs.   VAz .   <   •'.     "'H'^    S''95 
'  The  !'    '.-tuitl  fiu.vurl.     '-.t,    ',   ;,    \iA. 

*  7/ir  /'...';.'."j.'  "i,,!rf,  r,  ,     ,'.'      7    ;•    ICJ 


202 


BRITISH    WAR   ADMINISTRATION 


I  Si 


i>  i 


i. 

■    e 
.1 


3  ' 


majority  report  was  averse  to  minimum  wage  legislation;  and 
presented  for  consideration  suggestions  for:  (1)  a  government 
guarantee  of  a  minimum  for  wheat:  (2)  a  government 
i)onus  for  grass  land  brought  under  the  plow :  and  ( ;] )  import 
duties  or.  agricultural  produce.  A  minority  report  definitely 
proposed  minimum  wages  to  be  fi.xed  by  district  boards,  a  guar- 
anteed price  for  wheat  for  a  period  of  >ears.  and  a  bonus  for 
plowing  permanent  pasture;  and  expressed  doubt  whether  im- 
port duties  alone  would  give  the  iiecessarv  security. 

One  writer  discussing  these  reports  pointed  out  the  difficulties 
in  the  plans  proposed,  and  urged  the  need  for  agricultural  educa- 
tion. ' 

A  Dominions  Royal  Commission  issued,  in  !!)].">,  a  Memoran- 
dum and  Tables  on  the  Food  and  Raw  Materials  Requirements 
of  the  United  Kingdom.  -' 

Some  other  agencies  for  dealing  with  agricultural  problems 
other  than  food  supplies  may  also  lie  noted.  A  Forage  Committee 
was  established  to  advise  upon  the  purchase  of  farm  produce  for 
the  army.  In  .August.  UH."),  another  committee  was  appointed 
by  the  Board  of  .Agriculture  and  Fisheries,  to  consider  and  advi.se 
what  steps  shoi  Id  be  taken  to  secure  the  production  and  main- 
tenance of  a  supply  of  horses  suitable  and  sufficient  for  militarv 
purposes,  especially  on  mobilization.  ' 

At  the  end  of  191,'),  arrangements  were  again  made  for  the 
accumulatidu  of  certain  food  su])plies.  By  agreement  win.  the 
French  and  Italian  Governments  a  joint  international  committee 
was  organized  for  the  purchase  of  wheat,  tlour  and  maize  for 
the  tliiee  governments:  and  this  committee  began  oi)erations  in 
January.  lUKi.  Lord  Crawford  was  chairman  of  the  British 
committee,  which  iiad  power  io  purchase,  sell  and  control  the  de- 
livery of  wlKat  and  Hour  in  the  United  Kingdom,  and  to  take 
steps  for  maintaining  the  supph .  * 

Towards  the  end  of  lltl.-,,  there  had  also  been  adopted  a  sys- 

'  The  Political  Quarterlx.  Xo.  8  (!9Kii.  pp.  146-153 

'  :arliami!itar\   I'afKrs.  1915.  (\\    .Sl_',i 

■  l.ibcrjl  Jciir  Book.  1917,  p.  154. 

*  77ii-  Times  History  of  the  Wur,  \.  cli,  163. 


AGRICULTURE    AXD    FOOD    CONTROL 


203 


tem  of  requisitioning  ships  for  the  carriage  of  foodstuffs,  through 
the  Ships  Requisitioning  (Carriage  of  Foodstuffs)  Committee 
and  the  Ship  Licensing  Committee.  ' 

A  Food  Prices  Committee  \va  appointed  at  the  Board  of 
Trade,  in  June,  1!>10,  to  investigate  the  principal  causes  which 
had  led  to  the  increase  of  prices  of  commodities  of  general  con- 
sumption since  the  beginning  of  the  war,  and  U>  recinmiend  <ucli 
steps,  if  any,  with  a  view  to  ameliorating  the  -ituatinn  as  ajipear 
practical  and  expedient,  having  regard  to  the  necessity  of  main- 
taining adequate  supplies.  This  committee  consisted  of  ]i'  mem- 
bers, with  Mr.  T.  M.  Robertson.  M.l'..  as  chairman,  and  Profes- 
sor W.  T.  Ashlev  of  the  University  of  Birmingham  a,  one  of  the 
members.  Referring  to  the  report  of  this  committee  in  the  House 
of  Commons,  Mr.  Runciman,  president  of  the  Board  of  Trade, 
stated  that  there  was  no  evidence  of  exploitation.  - 

An  agricultural  policy  subcommittee  of  the  Committee  on  Re- 
construction was  appointed  in  August,  HHil,  to  consider  and  re- 
port upon  the  methods  of  effecting  an  increase  in  the  home  grown 
food  supplies,  having  regard  to  the  need  of  such  increase  in  the 
interest  of  national  security.  This  subcommittee  consisted  of 
fifteen  members,  with  Lord  Seliiorne  as  chairman.  ' 

A  Wheat  Supplies  Royal  Commission  was  appointed  on  Octo- 
ber 10,  T.UC),  to  inquire  into  the  supply  of  wheat  and  flour  in  the 
United  Kingdom;  to  purchase,  sell  and  control  the  delivery  of 
wheat  and  flour  on  behalf  of  His  Majesty's  government:  and 
generally  to  take  such  steps  as  may  seem  desiral)le  for  maintain- 
ing the  supply.  Lord  Crawford,  then  president  of  the  B'.ard  of 
Agriculture  and  Fisheries,  was  chairman  of  this  commission, 
which  took  over  the  function  of  the  grain  supplies  committee, 
and  early  in  January.  I'.nT.  touk  control  of  the  maize  trade  in 
the  United  Kingdom.  Later  its  acti^■itie^  were  extended  t 
dude  barlev,  rice,  oatmeal,  corn  flour,  lentils.  bean>  ant' 


m- 


pea; 


77i,-    Tui. 


i:is;cr\ 


the    i'ar.    \. 


'  The  Eduiburqh  R:iic:^.  vol    403 

=  l.ib,-ral    )\-ar  Bool;.   1417.   p    15.i: 
ch.  U>3.  .       ,_ 

'  I'arlHim.-ntivy   Pafcrs.  1917.   v.(1    ^^^|^.  -     ,        .- 

'  l.ihcr.r    ),;ir    lh>ol,\    W\7.    \>.    lt>-' ,    Vir.x    K-.-p-rt    ot    t!it    Lummittcc    on 
.\'atu>!ial  l-;.spt.iiditurc.  1','17. 


204 


BRITISH    WAR   ADMINISTRATION 


M  :  j 


W^. 


The  Food  Prices  Committee  presented  an  interim  report  in 
September,  1916,  on  the  prices  of  meat,  milk  and  l)acon;  a  second 
interim  report,  on  November  Ij.  on  the  prices  of  bread,  flour 
and  wheat,  and  freight  charges :  and  a  third  and  final  report  on 
December  30,  on  the  prices  of  potatoes,  tea  and  sugar.  None  of 
these  reports  were  published  until  1!)17.  The  first  report  pre- 
sented a  series  of  recomnicndaticlns  relating  to  shipping,  more 
labor  for  transportation,  restrictions  on  imports  and  economy  in 
the  use  of  foods;  and  seven  members  signed  an  additional  recom- 
mendation in  favor  of  government  control  of  prices  for  home 
grown  supplies.  The  seosnd  report  included  a  recommendation 
that  the  government  should  fix  a  maximum  price  for  w  heat ;  and 
five  members  recommended  also  an  increase  of  ten  ])er  cent  in 
the  amount  of  flour  made  from  wheat.  As  the  Food  Controller 
had  been  appointed  before  the  third  report  was  made,  no  gen- 
eral recommendations  were  made  in  that  document.  ' 

A  committee  of  the  Royal  Society  prepared,  at  the  request  of 
the  president  of  the  Board  of  Trade,  a  report  on  the  food  supply 
of  the  United  Kingdom.  This  committee  included  representa- 
tives of  the  Board  of  Trade  and  Board  of  Agriculture,  and 
several  professors  of  physiology,  biochemistry  and  agriculture, 
with  .\.  D.  Wallace,  professor  of  physiology  at  the  University 
of  London  as  chairman.  * 

It  may  be  noted  that  the  various  bodies  appointed  up  to  this 
time  to  deal  with  agricultural  and  food  supply  questions  origi- 
nated in  several  sources,  and  represented  a  varietv  of  interests 
not  likely  to  be  always  in  agreement.  The  original  Cabinet  com.- 
mittee  on  food  supplies  appears  to  have  ceased  its  activities. 
The  other  agencies  set  up  included  several  departmental  commit- 
tees, connected  with  the  Board  of  Trade  and  the  agricultural 
departments:  two  Royal  commissions:  and  two  international 
committees.  While  in  some  cases  distinguishable  problems  were 
given  to  different  agencies;  in  other  cases  there  is  distinct  evi- 
dence of  overlapping  jurisdiction ;  and  no  provision  appears  to 

'  farliawmiarx  r.^,,crs.  1917,  Cd.  8358,  8483. 
'Ibid..  1917,  C<!.  8421. 


AGRICU'-TURE    AND    FOOI>   CONTROL 


ion 


have  been  made  for  coordinating  the  work  of  the  several  ajjencies. 
nor  for  any  comprehensive  consideration  of  the  interreiati(jn  of 
liie  problem  of  production,  supplies,  consumption  and  prices. 

Some  indications  also  appear  of  the  influence  of  ditferem  jjo- 
litical  factors.  With  the  formation  of  the  ('(jalition  ('ahinet, 
some  new  lines  of  policy  were  started;  tnit  the  diftirulty  ai  har- 
monizing the  conflicting  traditions  in  the  n:emhersliip  of  that 
composite  body  may  account  for  the  failure  to  develop  a  con- 
sistent plan  of  action.  It  may  l)e  surmised  that  the  Unionists 
were  more  readily  disposed  to  a  policy  of  increa'-inj^  govern- 
mental authority,  but  that  the  old  school  Liberal-  wen.-  iiiore 
hesitant  about  embarking  on  schemes  of  aggressive  action  whicli 
involved  further  restrictions  on  the  freedom  of  the  individual. 


The  Food  Controller 

On  November  15,  I'Jlf.,  the  president  of  the  Board  of  Trade 
(Mr.  Runciman)  annou.iced  the  forthcoming  appointment  of  a 
Food  Controller,  and  the  issue  of  new  food  regulations  under 
the  Defense  of  the  Realm  Act.  Shortly  afterwards,  new  food 
regulations  and  ordcs  were  issued  by  the  Board  of  Trade.  Th-  ■? 
required  millers  to  extract  a  higher  percentage  of  flour  from 
wheat:  prohibited  the  use  of  wheat  in  l)rewing;  fixed  a  maxi- 
mum price  for  milk;  and  restricted  the  number  of  course^  to  be 
served  at  meals  at  pul)lic  eating  places.  But  the  announcement 
of  a  Food  Controller  seem*^  to  have  been  made  without  the  re- 
sent 111  the  Prime  Minister;  and  n<>  appointment  wa^-  mmle  liriil 
the  fc'nnation  cif  the  new  Llt'vd  George  Ministry  in  Dectmuer. 
when  Lord  Devonport  \\af  named  fi  t  this  p"iitif'n.  ' 

The  New  Ministrie^  and  Secretarie^  Act,  pas-ed  'in  L'ecember 
20.  ■  provided  for  a  Minister  of  l-'ood.  under  the  title  lif  1-ood 
Controller.  It  was  made  the  'Juty  ■■!  thi-  ■official:  "to  re^-jlate 
the  supply  and  con>umpticai  r.f  fo'.'d  in  -iicli  maiine'  as  he  thinks 
best  for  maintaining  a  j)r.jper  -upp]_\-  of  ffu-.d.  amj  t'^  take  -uth 

'  The   '! ,mrs  Histvr\   ,;   ;<!,■   li'j'     \    th    163,  p,  33i :  Ldn.iju'Q'r.  Hcva-j.', 
vol.    .63:  S    l<    ')-  56.  Dfct-mbti  5.  1916. 
'  0  and  7  Geo.  \',  ch.  6S. 


200 


uritish  war  aoministration 


li 


steps  as  he  thinks  l)cst  tor  encouraging  the  production  of  food." 
For  these  purposes  he  shall  have  the  powers  and  duties  of  any 
government  department  or  authority,  whether  conferred  by 
statute  or  otherwise,  as  may  by  Order  in  Council  be  transferred 
or  vested  concurrently  with  the  department  or  authority  con- 
cerned, and  such  further  powers  as  may  be  conferred  by  regu- 
lations under  the  Defense  of  the  Realm  Consolidation  Act, 
I'.'U. 

The  act  contained  the  customary  provisions  about  officers  and 
expenses:  the  seal,  style  and  acts  of  the  Minister;  seat  in  the 
House  of  Commons:  and  also  provided  that  the  Ministry  should 
cease  twelve  months  after  the  war.  or  earlier  by  Order  in  Council. 

It  will  be  noted  that  this  act  left  the  powers  and  duties  of  the 
Food  Controller  to  be  determined  by  Order  in  Coui:cil.  These 
were  formulated  by  additional  Defense  of  the  Realm  Regula- 
tions, amended  from  time  to  time,  vesting  the  Foijd  Controller 
with  power;  (1)  as  to  maintenance  of  food  supplies;  (2)  to 
require  returns ;  ( ;j )  to  take  possession  of  factories  or  premises  in 
which  food  is  manufactured:  (4)  to  make  inquiries;  and  (.". ) 
sujjplemental  provisions.  Other  regulations  were  also  adopted 
extending  the  powers  of  the  Board  of  Trade  as  to  articles  other 
than  food:  and  the  powers  of  the  Board  of  Agriculture  and 
Fisheries  to  enter  on  and  c  'ivate  land  for  the  maintenance  of 
food  supply,  and  reducing  me  acreage  for  the  cultivation  of 
hops.  ' 

Under  these  regulations  the  Food  Controller  undertook  a  cen- 
sus of  stocks  of  foods  on  hand  and  to  estimate  the  visible  supply 
of  important  commodities:  and  the  Board  of  .Agriculture  and 
I-'isheries  began  a  survey  of  the  uncultivated  land.  These  meas- 
ures were  followed  by  ,.  long  series  of  orders  relating  to  siiecific 
commodities — in  some  cases  making  intjuiries.  in  others  impos- 
ing restrictions  on  use.  fi.xing  prices,  or  requisitioning  stocks. 
Thus  in  January  further  restrictions  were  placed  on  the  milling 
of  wheat  tlour,  reipiiring  a  minimum  of  >1  per  cent  of  dour  to 
be  extracted  from  wheat,  and  providing  for  the  addition  of  other 

'  Dcft-nsc  of  tlu'  Realm  kcgulations.  2  V  to  Z  T. 


rvT^ 


AGRICULTURE    ANT)    FOOD    CON  1  KOL 


207 


fjrains.  Restrictions  were  alsn  imposeil  (in  the  use  "i  -,uj;ar 
Maximum  prices  were  fixed  fur  potatoes  and  milk,  and  later  tor 
wheat,  barley  and  oats.  In  I'"e1)ruary  a  system  of  voluntary  ra- 
tioning in  the  use  of  bread,  meat  and  suj;ar  wa-  inauf^urated.  At 
the  end  of  April  the  government  took  over  all  the  Hour  mill-,  in 
the  United  Kingdom  and  a  Mills  Control  Committee  was 
api)ointed.  ' 

I'A-en  with  these  measures,  the  shortage  of  -ome  stajiles, — 
notablv  sugar,  potatoes  and  margarine — caused  a  good  deal  of 
inconvenience  in  the  spring  of  I'.HT.  Line>  of  ])urcha>er-  formed 
in  front  of  dealers'  premises  to  secure  limite<l  allowance-, 

Marh  in  I'.HT.  a  Director  (ieneral  of  l-"ood  I'.conom>  wa-  ap- 
pointed: and  a  comprehensive  canvass  of  the  ])eop!e  was  organ- 
ized, bv  means  of  war  savings  committer  in  all  parts  of  the 
coimtrv.  On  May  l',  a  Royal  Proclamation  ua-  i^-ued  urging 
economy  and  frugality  in  the  use  of  food  supplie-.  IJut  the-e 
measures  did  not  result  in  any  great  saving.  ' 

In  June.  Lord  Devonport  resigned  as  Food  Controller,  on  ac- 
count of  ill  health  :  and  this  place  was  accepted  by  Lord  Rhondda, 
who  was  transferred  from  the  Local  (iovernment  I'.oard ;  J.  H. 
Clvnes.  a  Labor  member,  was  appointed  parliamentary  secretary. 
Lord  Rhondda  increased  largely  the  >tafT  and  organization  of 
the  Food  Ministry:  and  under  enlarged  powers  he  extended 
still  further  the  number  and  scope  of  food  orders.  During  I'.ilT. 
L'-d  orders  and  general  licenses  were  issued.  .\n  accountancy 
branch  was  organized  to  determine,  by  examining  trader-'  l)o(jk-, 
costs  and  the  cause  of  increased  prices.  \ew  orders  were  is-ued 
fixing  maximum  prices  and  restricting  the  jirotit-  of  ])roducer.- 
and  dealers.  The  price  of  bread  was  ke])t  down  by  a  -ub-idy  :  and 
the  g(  vernment  also  made  up  the  difference  !)etwecn  ]>rkei  on 
])otatoe>  guaranteed  to  farmers  and  maximum  jirices  for  sales. 
In  cooperation  with  the  Food  Controller-  in  I'anada  and  the 
United  States  all  imijort--  of  foodstuffs  were  br.aight  under  con- 
trol.   The  distrilnnion  oi  sugar  -upplies  was  improved. 


11.  L.  Gray:  lijr  r.'i.i,-  c\'ii:r..'  ,./  Ir.Ju.U'\.  p   21o 

77..    Twu-s  //M.vr;,   ,  ;  the  liar    x,i.  ch.  H'i.  ;.p,  441-!4J.  ,x^.  ch.  229. 


208 


BRITISH    WAR    ADMINISTRATION 


Great  Britain  was  apportioned  into  sixteen  tiotl  divisions, 
for  each  of  which  a  commissioner  was  appointed  by  the  Fooii 
Controller.  Loral  authorities  established  food  control  commit- 
tees (about  1,!»00  committees),  each  of  which  included  represent- 
atives of  lalxir,  women  and  the  ctxiperative  movement.  These 
committees  were  responsible  for  the  local  enforcement  of  food 
orders.  Supplies  were  commandeered  and  redistributed  by  local 
committees.  In  the  latter  part  of  I'tlT,  compulsory  rationing 
<  ime  commodities  was  introduced  in  certain  sections.  On 
January  1.  I'.ils.  a  general  scheme  of  compulsory  rationing  for 
sugar  was  begun;  and  was  extended  in  April  t(j  meat.  ' 

Some  criticism  has  been  made  of  the  general  policy  of  the  food 
administration,  as  tending  t<j  place  foremost  the  reduction  of 
prices,  the  regulation  of  distribution  and  the  restriction  of  con- 
sumption, and  subordinating  to  these  the  maintenance  of  sup- 
plies. It  has  1,-een  claimed  that  in  some  cases  the  control  of  prices 
led  foreign  dealers  to  reduce  the  amounts  shipped,  especially  in 
the  case  of  American  Ijacon.  Direct  efforts  to  stimulate  home 
production  appear  to  have  been  left  to  the  agricultural  depart- 
ments. ■ 

Indeed,  there  seems  to  be  an  almost  inevitable  conflict  1)etween 
the  policies  of  the  different  departments.  On  the  one  side  was 
u.  f'peated  ti.iiiand  for  guaranteed  minimum  prices  to  stimulate 
production.  On  the  other  side,  a  continued  etfort  by  fi.xing  maxi- 
mum prices  to  keep  down  the  cost  to  the  consuming  classes.  It 
may  be  (luestioned  whether  a  more  coherent  and  consistent  policy 
might  not  have  been  developed  if  the  different  phases  of  the  food 
supply  problem  had  been  combined  in  one  department  instead  of 
setting  uj)  an  additional  mini.stry  along.side  of  the  three  existing 
agricultural  deiKirtments.  It  has  also  been  suggested  that  an  ex- 
tension of  the  excess  profits  ta.x  to  intercept  high  profits  might 
have  been  more  successful  than  the  detailed  regulation  of  prices. 

'  Thi-  ll'ar  Cabiiu-t:  Report  for  the  ]ciir  l'J17,  pp.  178-131. 
The  Edinburgh  Rcvteu;  vol.  463. 


AGRICULTLRE    AND    FO(>t>   CONTROL 


209 


Home  Productio:; 

Some  measures  tak<;n  to  increase  the  home  production  of  food 
supphes  may  be  noted. 

A  Food  Production  Department  was  established  in  January. 
1017;  and  advisory  committees  to  the  agrirultural  departments 
on  food  produftion  were  appointed  in  Fuigland  and  Wales.  Scot- 
land and  Ireland.  On  jai.jary  :i<>,  1'.)1T,  the  agricultural  policy 
subcommittee  of  the  Committee  on  Reconstruction  ( appointed 
in  August,  lUltl)  submitted  an  mterini  report.  This  favored  the 
establishment  of  minimum  wages  by  means  uf  cinnity  wage 
boards  and  guaranteed  minimum  prices  for  wheat  and  oats.  The 
probable  effect  of  guaranteed  prices  on  rents  was  considered.  One 
member  of  the  committee  ( Sir  Matthew  Wallace )  dissented  on 
the  proposal  for  guaranteed  prices. 

In  April,  l!tl7.  a  committee  on  the  production  and  distribution 
of  milk  was  appointed  by  the  president  of  the  Board  of  .Agricul- 
ture, with  the  concurrence  of  the  I'"ood  Controller,  consisting  ot 
eight  members,  with  William  Astor  as  chairman.  This  sub- 
mi. ^ed  an  interim  report  on  June  s,  i;»17.  ' 

In  the  spring  of  1917  the  Board  of  -Agriculture  and  P'isheries 
took  steps,  through  the  local  authorities,  to  secure  the  cultivation 
of  unused  lam',  both  by  farmers  on  a  large  scale  and  by  towns- 
people in  small  gardens.  War  agricultural  executive  committee-^ 
of  not  more  than  seven  members  were  set  up  in  every  county  in 
Great  Britain,  appointed  by  previously  existing  coutity  war  agri- 
cultural committees.  Subcommittees  and  district  committee^ 
werf.  also  formed,  and  district  commissioners  in  charge  of  tw(j 
or  more  counties.  These  neasures  achied  substantially  to  the 
supply,  especially  of  ])otatof>  and  other  vegetables;  and  condi- 
tions were  materially  imi)rove(l  early  in  the  summer.  ■' 

-A  corn  production  bill  was  introduce  !  in  Parliament,  and  wa.> 
read  a  second  time  on  April  •_'."> — the  Lil)eral  niemljers  l.irgclv 
abstaining   from  voting.     This  provided   for  guaranteed  mini- 

'  l\irlnn,u;itarv  Palmers.  1917.  Cii.  8506,  8608. 

'  Thi'  Hull's  History  of  the  ICjr.  xii,  ch.  192,  pp.  44o-444 ;  1  he  War  Cabi- 
net: Report  for  the  Year  I'-'ll. 


210 


BRITISH    WAR    ADMINISTRATION 


mum  prices  on  wheat  and  oats  tor  five  years,  for  minimum  wages, 
for  the  regulation  of  arrangements  between  i^ndords  and  ten- 
ants, with  powers  of  entry  upon  land  lO  secure  better  cultivation. 
This  bill  was  read  a  third  time  in  the  House  of  Commo  •-;  and 
passed,  on  August  7,  by  a  vote  of  lOS  ayes  to  U  noe.^ 

During  the  year  lid 7,  also,  more  effective  coord  t.rui.n  ,va- 
secured  l)etween  the  War  Office  and  the  Departmt  f  .V;rii- 
culture,  in  connection  with  farm  lajjor. 

Othf.r  Committees 

In  addition  to  those  alieady  mentioned,  the  following  com- 
mittees on  f()(v:  and  dtlie:-  agricultural  supplies  have  been  created. 
Most  of  these  in  this  list  appear  to  have  been  connected  with 
the  w.v  Food  Ministrv. 


British  Supplies  Advisory  Committee 

Cattle  (Ikitish),  Ciminii'ttee  nn  I'tilization  of 

Cotton  Crowing  in  the  British  Rmpire,  Committee  >n 

Fish  (Coarse)  Irish  Committee 

Fish  (  Cured  )  Connnittee 

Fish  I-"ood  and  Motor  Loan  C(jmmittee 

Fish  I'ood  Committee 

Fish  (  I-"rcshwater  ;  Committee 

Fish  (Tinned)  In, ports  Committee 

Fisheries,  Sea  (Scottish),  Committee 

Food  Production  Advisorv  Committee 

i'ood  Production  m  Ireland  Advisory  Committee  ' 

Ijjod  I'roductioti  in  Ireland  Departmental  Committee' 

Fruits   (  Imjjort   Licen.'ies)   Connnittee 

(irani  and  Potato  Crops  (  1!>17)  Connnittee 

(irain  Supplies  Committee 

Mops  Control  I'onnnittec 

Horse  I5ree(ling  Committee  Xo.  J 

Horses  (  Utilization  and  beeding  of)   Committee 

Kitchen  (Central)  Committee 

Meat  Committee 

Meat  Supplie.-i  Interdepartmental  Committee 

Connected  with  the   Irisli   Dipartiiuiit  of  AgriciiUtirc. 


AGRICL-LTIRF.    AND    FOOD    CONTROL 


211 


Oats  Control  "^'onimittec 

Oraiifjes,  .Vh   -ory  Committee  on  Imports 

Pig  Hreedinjj  Industry  ( Ireland)  Departmental  Committee  ' 

Poultry  Advisory  Committee 

Rationing  Consultative  Committee 

Spirits  and  Wine.  Delivery  of  from  Bond,  Committee 

Tea  Advisory  Committee 

Tea  Control  Committee 

Wheat  Executive 


Food  Orders 
s.R.o. 

">()  Seed  Potatoes  (Growers  Prices)  Order 

.">1  liarlev  and  Malt  (  i'ieturns)  Order 

■);'.  Potatoes  ((iroweis  Mrturns)  Order 

.-.4  Waste  of  Wheat  Order 

."■)t'i  Kegnlation  of  Meals  Order 

r>lt  Seed   Potatoes  Order 

(iO  Potatoes  (Ireland)  Order 

>'<2  Manufacturi-  of  l-"Iour  and  Bread  Order 

ti;i  Oats  (  Px])ort  from  Ireland)  Order 

(il  Milk  (  Cse  in  Cli(;colate|  Order 

•  i.")  Sugar  in  Confectionery  Order 

t'i»i  I'eeding  of  (lame  Order 

fit  Wheat  (  Restriction)  Order 

tis  Price  of  Milk-  Order 

s!t  i'otatoes  line.  Main  Crop  (  Prices)  Order 

!•(•  Ilrewers'  Sugar  Order 

I'll  Dealings  in  Sugar  (  Restrictive)  Order 

PIJ  iSrewers'  (Malt  Purchases)  Order 

l.'i'.t  Malt  I  Restriction)  ')rder 

17s  I'oti.toes  I'.Mil  Main  Crop  (  Prices)  Order 

IT'.i  Seed  Potatoes  (  Prices)  Order 

P>7  Manufacture  of  I'lour  and  Bread  Order 

IM'  I'.read  Order 

■-'."il  I'Veshwater  I'ish  Order 

l'.M'  Malt  (  Restriction  on  Sliipping)  Order 

L'lU)  Swedes  (  i 'rices)  Order 

■Jill  I'Ood  ( (  onditioMS  of  Sale  )  ( )rder 

L'lid  Oats  and  Potatoes  (  Ireland  )  Order 

'  Coiiiicctcd  will;  ilu'  Irish  I  )cpartiii(.iit  ul   Agriculture. 


Ian. 

11>, 

n: 

lati. 

■_>(•., 

1 

•  17 

Nov. 

I'l, 

Mt; 

Nov, 

-'■'. 

lit; 

Dec. 

.», 

iiii 

Dec. 

14, 

lit; 

Dec. 

is. 

lit; 

Ian. 

11, 

117 

Tan. 

11 

Jan. 

11 

Jan. 

11 

Jan. 

11 

Jan. 

11 

fati. 

•2i> 

Pel). 

1 

I'el). 

s 

I- eh. 

s 

Pel). 

:{ 

Fell. 

•20 

I'"ei). 

2i 

[■eh. 

J  4 

1-eh 

■  • 

I' 

, 

M. 

1  li 

Mch. 

L'l 

Mch. 

2] 

.\Ich. 

2\ 

.Mch. 

l'S 

i 


212 


IIRITISII    WAR    ADMINISTRATION 


:•« 


S.R.O. 


■2f<l 

;;i4 
;!15 

;ur 
;iis 
;!4,-. 

;!«4 

•,]7-2 

:iTr 
;iS7 

402 
404 


424 
4211 

4;i!i 
444 
445 

4.-.7      I 

4:.> 

4»2 
4s;! 

r.io 
r)2(i 

o.'iT 

(;i;! 


Intoxicating  Liquors  (Output  and  1) 

livery)  Order 
Amending  2") 2.     (Sugar  Restriction 

Order) 
Seed  Potatoes  (Prices)  Order  No.  2 
Public  Meals  (^rder 
Manufacture  of  Flour  and  Bread  Order 

Xo.  ;i 
Food  Hoarding  Order 
Tea  (Net  Weight)  Order 
Malt  (Restriction)  Xo.  2  Order 
Wheat,  Barley  and  Oats  ( 1  Vices)  Order 
Barley  ( Kec|uisition)  Order 
Cake  and  Pastry  Order 
Wh-^at,  Rveand  Rice  (Restriction)  Order 
Flour  Mills  Order 
Freshwater  Fish  (Ireland)  Order 
Seed  Potatoes  (Prices)  Order  Xo.  3 
Maize,   Barlev  and  Oats   (Restriction) 

Order 
Burmali  Peas  and  Beans 
Local  authorities — Prosecution  of  oiTenses 
Oats  and  Maize  Products  (Retail  Prices) 

Order 
Hor.ses  (Rationing)  Order 
Dealings  in  Oats  (Restriction)  Order 
Amending    ;;i4    (Public    Meals    Order) 

Xn.   2 

Scans,  Peas  and  Pulse  ( Recjuisition ) 
Order 

Amending  2.".2  and  2S1  (Sugar  Restric- 
tion ( )rdcr ) 

Oats  and  Maize  I'roducts  (  Retail  Prices) 
Onler  Xo.  2 

P.read  Order 

Cheese  i  Requisition)  Order 

Meat  (S.iles)  Order 

Sugar  I  Dciinestic  Preserving)  Order 

Inspectors  uf  Heights  and  Measures 

Oats  (  Export  from  Ireland  )  ( )r(ler  Xo.  2 


Mch.  29 


Mch. 

1(> 

Ap,. 

;j 

Apr. 

4 

Apr. 

4 

Apr. 

,"> 

Apr. 

5 

Apr. 

12 

Apr. 

u; 

.\pr. 

1() 

.\pr. 

IS 

Apr. 

24 

.\pr. 

24 

.\pr. 

25 

.\pr. 

.",0 

Mav 

2 

Mav 

1 

May 

8 

Mav 

0 

-Mav 

11 

May 

14 

May 

15 

Mav 

10 

Mav 

22 

Mav 

2;? 

Mav 

21) 

May 

.'il 

June 

11 

June 

11 

June 

2!» 

AGRICCLTLKE    AND    FOOD    CONTROL 


n.s 


S.R.O. 

or;] 

004 
TOO 

TOl' 
to:; 
Tl'J 
TOO 
T()T 
Ttis 
Tti!» 
TTO 
TT4 
TTC 

81':, 
8c;:! 

,St!8 
S()',> 

tlO.'J 
!tlO 

!tll 


01  ;j 

015 

9;i5 
o:5T 
o;!0 

040 


Amending  -TU    (rul)lic    .Meals   Onier) 

Xr,,   ;; 
Beans,  Peas  and   I'ulsc   (Retail  Prices) 

CJrder 
Stfjne  Fruit  (jam  Ml'rs.'  Prices)  Order 
lutoxicatinj,'    Li(|uor    ((Jutput    and    De- 
livery) Order  Xo.  2 
Raspl.-rries  (Jam  .Mfrs.'  Prices)  Order 
Rasi)l)erries  (  Scotland  )   I  (eliverv  Order 
lOlT  Crop  (Restriction)  Order 
Winter  Beans  Order 
Cattle  and  Meat  (Returns)  Order 
Sea  iMshing  (England  ami  Wales)  Order 
Fisluries  (Ireland)  Order 
Pickled  Herring  (Returns)  Order 
Flour  .Mills  Order  Xo.  l> 
.Milk  (  Returns)  Order 
t'arley  (  Restriction )  Order 
Winter  Oats  and  Rye  (  Restriction)  Order 
Peas,  P.eans  and  Pulse  (  Retail  Prices ) 

Order 
Jam  (  Prices )  Order 
Tea  (Returns)  Orde*- 
Apricot  Pulp  and  I'.itter  Oranges  Order 
Food  C(jntrol  Committees  Order 

[to  1k'  ap])ointed  by  each  local  authority 
Mea*  (Maximum  Prices)  Order 
Bacon,     Ham    and     Lard     (Maximum 

Prices)    Order 
Cheese  (.Maximum  Prices)  Order 
Oats  and  Mai?e  Products  (  Retail  Prices) 

Order  X(i.  :' 
Butter  (  Maxiimnn  Prices)  Order 
Hops  (  Re    rictiiin)  Order 

as  amended  hy  Order  Xo.  2 
Sea  Fishing  (  Ireland)  Order 
Seed  Potatoes  (  Immune  X'arieties)  Order 
I-'lour  and  liread  (I'rices)  Order 
Milk  (  Prices  I  Order 
Dried  Fruits  (Restriction)  Order 


Jul%     3 


fulv 

4 

July 

G 

Jiilv 

1 

lulv 

10 

Julv 

10 

Julv 

1;! 

Julv 

■27 

Julv 

■2S 

luly 

:30 

Julv 

30 

)ulv 

31 

Julv 

31 

July 

31 

Aug. 

I.-, 

Aug. 

14 

Aug. 

14 

Aug. 

1". 

Aug. 

20 

Aug. 

•21 

Aug. 

.>■> 

Au£ 


Aug. 

30 

Aug. 

31 

Aug. 

31 

Aug. 

31 

Sept. 

•  > 

•  > 

Aug. 

31 

Sei)t. 

.> 

Sept. 

(1 

Sept. 

1 

Sept. 

8 

II 


mf 


^Mrr-b^f 


214 


BRITISH    WAR 


.VIINISTRATION 


->»? 


S.R. 

94 

1)4!' 
!i:)4 
1MJ4 
!m;.") 
074 

snts 
loor. 

1000 

idi'it 
U);i() 
i();i2 
lo:!.-! 
in4s 

ni,M 

lO.'iS 

i(i:i',t 

]>m;:; 
li)t;:i 

](i!t;! 
IKto 
11(11 
ll(i:> 
1100 


\tnencling  ltO;i— Meat  (Maximum 

1  'rices  )  Order  Xo.  :.* 
Potatoes  Order 

Horses  (  Ratioiiins,')  Order  Xo.  2 
I'ickled  lierrinjj:  Order 
Gutter  (.Maxmnim  i'rices)  Order  Xo.  2 
Hacoii.  Ham  and  Lard  (Maximum 

I'rices)  Order 
Potatoes  (  rostpoiieiueut  of  Date)  Order 
Lard  (  Returns)  Order 
t'heese  (  Ma.ximum  Prices)  Order  Xo.  i' 
Wheat  (Channel  Islands  and  Lsle  oi  Man 

Mxport)  Order 
Paitter  (  ^hiximum  Prices)  Order  Xo.  3 
P>read  (Use  of  I'otatoes)  Order 
Milk  Order 
I'uhlic  Meals  Order 
Dried  l'"ruits  (Restriction)  Order 
Sea  Fishing  (  Scotland  )  Order 
Flour  and  Bread  (  Prices)  Order 
Sugar  Order 

Potato  Dugs  (Returns)  Order 
Currants  and  Sultanas  (Requisition) 

Order 
Beer  (  Prices  and  Description)  Order 
Intoxicating  Liquor   (Output  and   De- 

li\ery)  Order  Xu.  ;! 
P>acon.  Ham  and  Lard  (  Maximum 

Prices)  Order 
Tea  (  I'rovisional  Prices)  Order 
Jam  (  Prices)  Order 
Sugar  (  Sales  for  Ireland)  Order 
Milk  I'actories  (  i-Jestriction  )  Order 
Butter  ( .Maximum  Prices)  Order  Xo.  4 
Potatoes  Order 

Potat<ies  (Growers  Returns)  Order 
Britisii  Ciieese  Order 
Order  Revoking  Winter  Bean  Order  and 
Winter  Oats  and   Rye   (Restriction) 
Order  ^ 


Sept. 

11 

Sept. 

i:{ 

Sept. 

2(; 

Sept. 

■20 

Sept. 

L'O 

Sept. 

iH 

Sept. 

27 

Sept. 

20 

Oct. 

1 

Oct. 

1 

Oct. 

2 

Oct. 

r> 

Oct. 

8 

Oct. 

8 

Oct. 

10 

Oct. 

10 

Oct. 

12 

Oct. 

12 

Oct. 

i;} 

Oct. 

i;5 

Oct. 

15 

Oct.    15 


Oct. 

17 

Oct. 

17 

Oct. 

ic. 

Oct. 

20 

Oct. 

21 

Oct. 

2  (J 

Oct. 

••iO 

Oct. 

'iO 

Oct. 

;Ji 

'im 


•^' 


^^:^'^^.^^'j^_  i^i^-^1     jTvg^ 


S.R.O. 

1107 


1110 
112-' 

iiL>;i 

1124 
1130 

11. •i4 
11:J5 

ii;]8 

1140 

11.-),-) 
ll.-)t) 

11. -)T 
1100 

1102 

1 1  tJ.'i 

1170 
1 1 ::', 
1174 

IISO 

11  SI 
1LS2 

lis.-) 
llso 

IISS 
USD 

11!»2 
ll!t:} 
ll!t!) 


AGRICrLTURi:    AND    FOOD   CONTROL 

Cattle  Feeding'  Cake  and  Meal  and 
Millers'  Offals  (.Maximum  Trices) 
Order 

Butter  (Maximum  Prices)  (Amend- 
ment) Order 

Butter  (Maximum  Prices;  Order 
(Xo.  o) 

cnn.  Ham  and  Lard  (  Maximum  Prices 

Order 
Pigs  (  Maximum  Prices )  Order 
Enforcement  (England  and  Wales) 

Order 
Oil  Splitting  Order 
Sugar  and  Confectionerv  Order 
Food  Ctjiitrol  Committee  fcir  Ireland 

( Powers)  Order 
Sugar  Order 

Seed  Potatoes  (l!»17  Crop)  Order 
Testing  of  Seeds  Order 
Oats  Products  (  Retail  Prices  I  Order 
Food  Control  Cummittee  for  Ireland 

(Constitution)  Order 
Margarine  (Maximum  I'riccs)  Order 
I'.utter  (  Distribution)  Order 
l'(itatoes  (,)rder 

Horse  and  Poultry  Mixtures  t)rder 
Damaged  Grain.  Seeds  and  Pulse 

(Prices)  Order 
Bacon,  Ham  and  Lard  (  Provisi< -a! 

Prices)  C)rder 
Potatoes  Order,  (leneral  License 
Dredge  Corn  Order 
Sugar  (Brewers  Restrictinn)  Order 
1-ood  Control  Comnn'ttees  (Milk 

Kc(|uisition  )  Order 
Potatoes  Order  i  Xo.  2) 
i'o'xl  Control  Committees  (Scotland) 

Powers  ()rder 
Cream  Order 

I'igs  (Maximum  Prices)  Order 
Pot;lt^)es  Order 


21J 


Xov. 

1 

Oct. 

:)1 

Xov. 

:] 

Xov. 

•) 

Xov, 

<; 

Xov. 

I'.t 

Xov. 

:» 

Xov. 

i» 

Xov. 

s 

Xov, 

12 

Xov. 

12 

Xov. 

10 

Xov. 

1 

X,.v. 

10 

Xov. 

14 

Xov. 

s 

Xov. 

17 

Xov.   17 


Xov. 

17 

Xov. 

17 

Xov. 

17 

Xov. 

I'.t 

Xov. 

lit 

Xov. 

l',> 

Xov. 

20 

X'oV. 

20 

X,iv. 

20 

X'uv. 

2;i 

i 


210 


BRITISH    WAR    ADMINISTRATION 


'1 


S.R.O. 

1200 
1201 

i-'o;; 
I2i;i 

12J!t 

1220 
1224 

122:. 
1220 

1227 
122> 
l2:i;j 

124(1 
1247 
124S 
12.-.(1 
12r.7 

I2r.'.t 

3  2!'2 

12',t:> 
12!h; 

l.':i7 
12'.'> 

12!i'.' 

1  ;!(•:. 
j;!io 

i:!l2 
i;n:t 
i:il4 


Oats  Products  (  Postponement  of  Date) 

Order  Nov.  24 
Bacon.  Ham  and  Lard  (Distribution) 

Order  Nov.  24 
Meat  (Control)  Order  Nov.  27 
Jntoxicatiiif?  Licjuors  (Output  and  De- 
livery) Order  Xo.  4  Xov.  2S 
Manufacture  of  l'"lour  and  Bread  Order 

(N'o.  2)  Nov.  27 

Dried  Fruits  (  Restriction )  Order  Nov.  28 
Oils,  Oil  Cakes  and  Meals  (Requisition) 

Order  Nov.   28 

Hardened  Fat  (  Rec|uisition  )  Order  Nov.  28 
Seeds.  Xuts  and  Kernels  (Requisition) 

Order  Nov.  2!) 

Milk   (Ireland)   Order  Nov.  28 

Coffee  (Retail  Prices)  Order  Dec.     1 

Ships'  Stores  Order  Dec.     5 

Bread  (  L'se  of  I'otatoes)  Order  No.  2  Dec.     8 

Dutch  Cheese  (] 'rices)  Order  Dec.     8 

Pigs  (Maximum  I'rices)  Order  Dec.  10 

Su!.;ar  Order  .\o.  2  Dec.   11 

Potatoes  Order  Dec.   11 

Meat  (Restriction  of  Retail  Sales)  Order  Dec.  11 
Bacon,  Ham  and  Lard  (Provisional 

Prices)  Order  Dec.   13 

Tea  (Provisional  Prices)  Order  Xo.  2  Dc.   14 

Milk  (  L'se  in  Chocolate)  Order  .\'o.  2  Dec.   14 

Condensed  Milk  (Returns)  Order  Dec.   14 
I'ood  Control  Connnittees  (.\udit  of  .\c- 

t\>unts)  Order  Dec.    14 
Live  Stock  (Restriction  of  Slaughter  I 

Order  Dec.    14 

Raw  Coffee  (Returns)  Order  Dec.    18 
I'ood  C'ontri.)]  (^'onimittees  (Margarine 

l\e(|uisition)  Ortler  13ec.   20 

Oils  and  I'ats  (  Requi-iition)  Order  Dec.   21 

Suj;ar  (Brewers  Restriction)  Order  Xo.  2  Lee.  21 

Bacon  and  Ham  Curers  (  Returns)  Order  Dec.   21 
Refined  N'egelahle  Oils  (Requisition) 

Order  Dec.  21 


AGRICULTURE    A\D    FOOD    CONTROL 


21; 


S.K.O. 

131(i 


1318 
l:il!t 
i;5L'r> 


1  ;!■)() 

V.yGH 

1 

2 

8 
<) 

iL' 

14 
•20 

L'l 


■,i-2 
34 


Cattle  Feeding  Stuffs  (Committees) 
Order 

.">    Permanent    Feeding    Stuffs    Com- 
mittees 
35   Provisional  Feeding  Stuffs  Com- 
mittees (L\s  England  and  Wales.  7 
Scotland) 
Meat  (  Maximum  Prices)  Order  Xo.  3 
British  Cheese  Order 
I'ood  Control  Committees    (Local   Dis- 
tribution )  Order 
Oats    Products    ( R'^tail    Prices)    Order 
No.   11  "(T,  as  amended  bv  Nos.   Il'OO 
and  132.S 
Ice  Cream  (  Restriction  )  Order 
Sugar  (Rationing)  Order 
Meat  (Maximum  Prices)  Order 
Ice  Cream  (Restriction)  Order 
Committees  (Disqualification  for  Mem- 
bership) Order 
Butter  (Ireland)  Order 
Sugar  Order,  I'.tlT,  General  License 
Rabbits  (  Prices  )  Order 
Whiskey  (Restriction  on  Sales)  Order 
Bread  (  Use  of  Potatoes)  Order 
I'lour  and  l?read  (Prices)  Order.  IHIT 
Wheat  (  Seed  )  Order 
Deer  (Restriction  of  Feeding)  Order 
Meat  (Maximum  Prices)  Order.  11)17 
Dutch  Cheese  (Prices)  Order,  l'.tl7 
Live  Stock  (Restriction  of  Slaughter) 
Order,  1917 


D?.c.  21 


Dec.  22 
Dec.  _'l 

Dec.  22 


Dec, 

2!> 

Dec. 

31 

Dec. 

24 

Jan. 

2.  lOlS 

Jan. 

•) 

Jan. 

3 

Jan. 

4 

Jan. 

4 

Ian. 

,") 

Jan. 

>> 

Ian. 

1) 

Jan. 

10 

Jan. 

u 

Jan. 

1  + 

Jan. 

14 

Jan.  12 


key 
W 


CHAPTER  XI 

Financial  Administration 

Financial  problems  arising  nut  ui  the  war  have  not  only  in- 
volved an  undreamed  of  ex|)ansiiin  in  the  ^cale  of  the  fiscal  af- 
fairs of  the  j,Mvernment.  with  radical  changes  in  methods;  hut 
have  also  led  to  far-reaching  and  in  many  respects  novel  steps 
for  dealing  with  the  financial  transactions  of  the  business  world 
and  private  iiulivitluals.  At  the  outbreak  of  the  war.  the  emer- 
gency measures  for  preventing  a  complete  breakdown  in  the  fi- 
nancial machinery  of  trade  and  business  were  indeetl  more  strik- 
ing and  of  more  significance  than  the  early  steps  for  meeting  the 
fiscal  needs  of  the  government. 

One  of  the  first  measures  taken  was  the  formation  of  a  gen- 
eral committee  to  assist  the  government  in  financial  matters. 
This  committee  included  Austen  Chamberlain  and  Lord  St.  Ald- 
wyii  (former  Chancellors  of  the  Exchequer),  Lord  Revelstoke. 
the  (njvernor  of  the  Hank  of  England,  the  Lord  Chief  Justice  of 
England  and  Sir  John  Bradburv.  ' 

Regulation  of  Private  Transactions 

On  Saturday,  July  .'H.  Iltl4,  the  London  Stock  I.  .change  was 
closed:  and  the  rate  of  liank  discount  was  doubled,  from  4  to  s 
per  cent,  and  later  increased  to  10  per  cent.  August  :*  was  a 
bank  holiday,  and  this  was  extended  for  three  days.  On  August 
-  a  moratorium  was  declared  by  a  Royal  Proclamation  postpon- 
ing for  one  month  the  pavment  of  certain  bills  of  exchange.  .An 
Act  of  Parliament,  passed  on  the  od,  confirmed  this  proclamation, 
and  authorized  the  postponement  by  Royal  Proclamation  of  the 
jjayment  of  liills  of  exchange  and  other  obligations  "  for  such 

'  The  Times  History  of  the  II  or,  mi,  tli,  \\A,  \).  238. 

21o 


VitvJ. 


rl.VANCIAL    ADMINISTRATION  219 

time  and  .subject  to  such  cuiulitions  or  other  provisions  as  may 
\)t  si)ccifiecl  in  the  proclamation."  ' 

Under  this  act  a  proclamation  was  issued  on  .-Kugust  tl,  ex- 
tending the  moratorium  (jt  August  i'  to  certain  other  payments. 
Further  proclamations  were  issued  on  August  1:?.  and  on  Sep- 
tember 1,  ■')  and  ."50,  extending  and  varying  the  provisions  of  the 
moratorium,  the  last  of  these  providing  that  the  moratorium 
should  end  on  Xdvember  4.  - 

A  Currency  and  Bank  Notes  .Xct  was  passed  on  .August  i>, 
authorizing  the  issue  by  the  Treasury  oi  currency  notes  f(jr  one 
pound  and  ten  shillings,  and  the  issue  by  the  Bank  of  England  and 
Scotch  and  Irish  banks  of  notes  in  excess  of  the  former  limit, 
and  making  bank  notes  in  Scotland  and  Ireland  legal  teniler. " 

.Arrangements  were  made  for  issuing  currency  notes  through 
the  Bank  of  b'ngland,  as  and  when  recjuired,  to  a  maximum 
limit  not  exceeding  iM)  per  cent  of  the  liabilities  of  any  bank 
on  deposit  and  current  accounts.  In  Scotland  and  Ireland  cur- 
rency notes  were  issued  as  cover  for  bank  notes.  Bv  Januar\, 
liH.j,  i:;JT,(iU(),U(tO  in  notes  had  been  issued;  and  gold  had  almost 
disa])i)eared  from  circulation.  * 

The  volume  of  currency  notes  has  continued  to  show  a  marked 
increase.  Bank  of  England  notes  in  circulation  also  show  a  mod- 
erate increase,  the  additional  issues  being  fully  secured  by  metal- 
lic reserve.  The  following  table  shows  the  currency  notes  and 
Bank  of  England  notes  at  the  dates  named.  '' 

Curniicy  Bank  of  Eng- 

Xotcs  land   .\otes 

Outst.-iii(!mK  in  Circulation 

July  29.  1914 £J9.-06.35() 

.\iiKUSt  26,   1914 £  21.5.Vi.{)65  .i5,.vl,435 

December   M).    1914 j8,478,164  ,i6,139,180 

December   29,    1915 1(U.I25.099  35.309,255 

December   27,   1910 150,144,177  39,1.75.535 

Oeccmbcr   2o.    l'»17 212,782.295  45,<143,96() 

February  20,   1918 216,134,893  40,207,.U0 

■  Manual  of  Eiin-rgcitcy  Legislation,  pp.  235,  238;  4  and  5  (jeo.  \',  eli,  11. 
''  Mutual  of  liiitcri/i'iuy  Legislation,  pp.  239-247. 
'  4  and  5  (iec    \',  chs.  14,  72. 

'  I'arliamoutarx  l^if'crs.  1914,  N'o.  457;  Manual  of  f.))UTgcnc\  Legislation, 
p.  136;  The  Times  llistorx  of  the  War.  vii,  ch.  114.  p.  2'o4. ' 
''  The  Lconumic  World',  n.s.,  xv,  593  ^.-Xpril  27,  1918). 


220 


nRITISH    WAR    ADMINISTRATION 


I'li' 


On  August  V2.  1!»14.  notice  was  given  of  an  arrangement  Ix:- 
tween  the  government  and  the  Bank  of  England,  under  which 
tlie  government  guaranteed  the  l)ank  from  loss  in  discounting 
bills  of  exchange  accepted  by  British  houses  prior  to  August  4. 
It  was  estimated  that  bills  of  exchange  were  in  circulation 
amounting  to  between  £350.000.()()()  and  tloOO.OOO.OOO ;  and  un- 
der the  above  arrangement  bills  ant.  iting  to  tlJO.OOO.OOO  were 
discounied.  ' 

As  a  preliminary  to  the  termination  of  the  general  morato- 
rium an  act  was  passetl  on  August  ;!I.  li'il,  giving  emergency 
powers  to  the  ct)urts  to  protect  delators  from  hardships  attril)- 
utable  to  the  war.  L'nder  this  act  the  execution  of  judgments, 
the  foreclosure  of  mortgages  und  ihe  lai)sing  of  certain  life  and 
endowment  insurance  po'i'-i-s  and  other  debts  could  be  enforced 
only  after  application  to  the  court,  which  had  power  to  stay  exe- 
cution or  defer  the  operation  of  remedies  for  such  time  and  sub- 
ject to  such  conditions  as  the  court  might  see  fit.  - 

More  direct  assistance  to  exporters  was  provided  by  the  ap- 
pointment, on  November  4,  i;il4,  of  a  Foreign  Trade  Debts 
Committee,  to  authorize  advances  in  approved  cases  to  British 
traders  carrying  on  export  business  in  respect  of  debts  outstand- 
ing in  for-.Mgn  coun'ries  and  the  coKjnies.  This  committee  had 
six  members,  representatives  of  the  Treasury,  the  Bank  of  iuig- 
land.  the  joint  stock  banks,  and  the  Association  vi  Chamlx-rs  of 
Commerce  of  the  United  Kingdom.  ' 

Un  October  .•;!.  i;il4.  the  Treasury  announced  its  approval  of  a 
scheme  for  g  jvernmeiit  advances  to  lenders  on  stock  exchange 
securities  ^.thcr  than  banks  to  which  currency  facilitie.s  were 
open  )  up  to  <;u  per  cent  of  the  value  of  their  securities,  on  con- 
dition that  they  would  not  press  for  repayment  of  their  loans 
until  after  the  war.  * 


'4  and  S  Geo.  V.  ch.  78:   The  Political  <Juartcrl\    i    165 
No!  y^p'.Ti/"^  £'".'avMf  V  Ugulation.  Supplement  No.  2,  p.  181  ;  Supplement 


FINANCIAL    ADMINISTRATION 


•221 


An  Act  of  Parliament,  of  Xovember  27.  I'Jli,  authorized 
payments  with  respect  to  various  ohlijjjations  of  the  government 
in  connection  with  the  war — includinj;  guarantees  and  advances 
on  Ijills  of  exchange,  advances  on  loans  to  members  of  the 
stock  exchange,  payments  on  contracts  of  insurance,  loans 
raised  by  the  Allies  or  British  dominions  or  possessions,  and 
the  maintenance  of  food  supply,  business  or  communica- 
tions. ' 

In  December,  1014,  the  Treasury  approved  the  reopening  of 
the  stock  exchange,  from  January  4,  l!tl.".,  subject  to  certain 
restrictions,  set  forth  in  Temporary  Regulations.  The  objects 
of  the  restrictions  were:  in)  to  safeguard  the  London  market 
against  forced  realization  of  securities  and  against  operations  for 
the  purpose  of  depressing  i)rices;  and  (b)  to  close  tlio  market 
absolutely  to  the  enemy  both  directly  and  indirectly.  Many  ui 
the  transactions  which  the  rules  were  designed  to  prevent  were 
illegal  under  the  Trading  with  the  Enemy  Acts  and  proclamations 
and  at  common  law.  ■ 

On  January  IK.  lULs.  a  Treasury  announcement  was  made 
that  fresh  issues  uf  capital  would  be  subject  to  approval  by  tho 
Treasury  before  they  are  made,  luider  the  following  general  con- 
ditions: New  issues  for  undertakings  in  the  United  Kingdom 
to  be  allowed  only  where  it  is  shown  that  thev  are  advisable  in 
the  national  interest;  those  for  undertakings  in  the  British  F.m- 
pire  overseas  to  ])e  allowed  only  where  urgent  necessitv  and 
special  circunT^tances  cxi.st :  and  those  for  undertakings  outside 
the  Britisii  Empire  not  to  Ix;  allowed.  ' 

.\nnouncement  was  made  on  January  27  of  the  appointment 
by  the  Chancellor  of  the  b'xchecjuer  of  a  committee  to  consider 
and  advise  u])on  ap])lications  received  by  the  Treasurv  for  ap- 
proval of  fresh  issues  of  capital.  This  conmiittee,  as  first  ap- 
pointed, consisted  of  '  ord  St.  .-\ldwyn.  chairman.  Lord  Cunlittc. 
the  Governor  of  the  l3ank  of  England,  Sir  Frederick  ("..  Ban- 


'  5  (uo    \-.  ch.  11. 

■■  ■}!t!nuiil  ,i  Lmcrsciuy  Lci)isktio,i,  Supplement  No.  3.  p.  533. 
Ibid.,  p.  404. 


o  .->.■> 


BRITISir    WAR    ADMINISTRATION' 


►  i^'-- 


Imry,  MV..  Sir  Th.mias  V.  Whittaker.  M.I'.,  and  Mr.  C.  Sta- 
pleton  F'.arne.s—ot  thi-  I'.onril  ot  Trade.  ' 

Xotice  wa.s  f,Mven  that  Trea.^ury  approval  \va>  rapiired  i.^r 
capital  issm-;  l,y  a  Kovenimciit.  nuinicipalitv  ..r  other  puhlic  hndv. 
a>  udl  a.  companies.  P„u  on  M  ,rch  i'.",.  I!»i:..  a  circular  letter 
"t  t!e  I.,KaI  (iovermnent  Hoard  announced  that  to  avid  dupli- 
cati-.n  ,,f  lahor  if  had  heen  arran-e.l  that  the  approval  of  that 
iHHJy  tor  loan>  hy  local  authorities  under  powers  conferred  hy 
pul.lic  .c-eneral  acts  or  In  local  acts  ,.r  i.rovisional  orders  should 
suttice  without  further  a[iproval  hy  the  Treasury.  ' 

An  Increase  of  Kent  and  .Mort<,'aj,'c  Interest  (War  Restric- 
ti"ns)  .\ct.  i.as>ed  in  Il'i:..  made  irrecoverable  any  increase  in 
rem  (  with  some  exceiiti.ms.  as  where  a  landl.)rd  had  incurred  ex- 
penditures ,.n  improvements),  or  in  interest  on  mort-a<;cs;  and 
pr.  hiliitei!  order-  for  recovery  or  ejectment,  as  loui:  as'^the  ten- 
ant com,, lid  uith  the  a.-reement.  or  callin-  in  mort-agcs  except 
luiiler  special  circmustances. 

An  amendment  to  the  Courts  (  luner-ency  Powers)  Act,  en- 
acted ,.u  May  17.  i:ii.;.  aimed  to  protect  the  financial  affairs  of 
otticer>  and  men  in  the  P.ritish  forces.  Umler  this  n,  execution 
or  other  ent'orcemeut  of  jndtjment  can  he  had  asain^t  anv  officer 
'  r  man  in  the  Pritish  forces  for  money  due  ami  pavahle  in  pur- 
suance of  a  contract  except  hy  special  permission  of'a  competent 
court,  which  has  ahsolute  discretion  to  stay  the  execution. 

Another  (  ourt-  i  l-.mer-ency  Powers)  Act  Xo.  l».  passe.l  in 
PUT,  broadened  the  .ireneral  scope  of  the  act  of  IWU.  and  aimed 
to  iirevent  some  hardshijis.  ■■ 


Fl.sCAL    TRAN.SAtTION,S 

I'otrs  i:f  Credit 

The  war  ^cJ.^-^n  when  the  r.-ular  session  of  Parliament  for 
the  year  PM  1  wa-  about  to  cio-c.  with  the  usual  financial  meas- 
ure- lor  the  fi-cal  Near  practically  comiileted.     To  meet  the  e.x- 

'u''T"[  'aL,''"'"'"''"^   t.r:,i-<hli,>n.  SupplinuMU    N,,.  3,  p.  405, 
'  (.  and  7  U..  V,  cli>.  1,V  18;  7  and  8  Geo.  V. 


FINANCIAL    ADMINISTRATION"  -J^:! 

traordinary  expenditures  ni  tlie  war.  resdrt  was  at  (-ince  made  *n 
a  vote  (if  credit,  liased  .>n  a  luini)  sum  estimate ;  and  tlii>  pmcedure 
has  been  tullnwed  at  intervals  of  a  few  mnntlis.  The  furm  ni 
the>e  votes  of  credit  nay  l)e  imhcated  liy  (|untiiis,'  in  full  the  first 
vote,  passed  .^iistist  :>,  I'.'l  1  ; 

I  li.ir  a  '•mil  tmt  i  srccditii;  onr  luiiKlr,  1  million  p.nirifN  ho  Rraiitcil  t" 
lli^  Majv^ly.  luNniiil  tin-  r.rilin.ir>  (ir.-ipt-  "f  t'arliamiiit,  towards  (k-fravim; 
tin  Il\inr.~tH  which  :ii.i>  ho  iiicurrt'il  'Uirini;  ilif  Mar  nidinn  tin.-  ,M -t  ni 
March,  i')\S.  I'"'  all  nua^iiri.'i  which  v'..i\  .ic  taken  I'.ir  thr  Scciirm  ct  tlu- 
(mintry;  lor  i  ic  cunduct  "f  Nasal  and  Military  < '[leratioii^ ;  I'ur  a'^>i-;iiii.' 
the  I  ood  Sii]  ly  ;  tor  prcimotiti),'  the  (  initiiuiancc  of  'i'r.idc.  Industry.  I'm  i- 
lu'--  and  C.  I  •iimiinicatioiis.  wlKtlur  hy  incan>  ot  '.ii~uiancc  or  iiuUmiiity 
against  r^k  or  otherwise;  for  the  Ke!ief  of  l)i~tre->;  and  generally  for  all 
txpeiises  ari>iiiK  out  of  the  existuice  of  a  -tate  of  war 


In  the  .\])])ropriatinii  Act  of  r.Mti.  there  was  ailded  to  tlie  li-t 
of  pur])ose-  for  which  tlie  vote  was  made,  "  tlie  tniancin<,'  of  the 
])urchase  and  resale  of  foodstuffs  and  materia^.' 

\"otes  of  credit  had  been  used  in  previous  wars — the  la-^t  pre- 
ceding,' vote  haviiifj  been  adopted  in  l'>^ri.  Tiie  Smith  Atruan 
war  was  tlnanced  on  votes  based  mi  su|)])lemeiitarv  e-tiniate<. 

A  Treasury  minute  of  Atiijust  JO,  I'.i!  1.  referred  to  the  nature 
of  a  vote  of  credit.  a>  described  in  a  former  'I'reasury  niiiuite 
of  I'"eliniarv  1.  !>>>().  and  l.iid  down  certain  rule-  for  expendi- 
ture-. .\  vote  of  credit  i-  not.  like  a  vote  of  -ujiplv.  made  to 
the  arm\  or  navy  or  any  of  the  spendino;  de])artmeins.  but  i-  made 
to  the  Treasury,  which  thus  has  tjeneral  supervision  ,,\  the 
expenditure-.  Rules  f^overninjj  exjjcnditures  re([uire(l  the  cAil 
service  departments  to  earmark  expenditure-  from  votjs  of  'Tedit. 
so  a-  to  distiiii;uish  them  from  expenditures  fiom  -ujij^ly  :  but 
this  did  not  apply  to  the  War  Oftice  and  the  .\dmiralt\.  A 
letter  f.  im  the  War  Office  of  .August  14.  I'.'l  t,  related  to  ac- 
countino;  for  war  expenditures.  ' 

l-'or  the  fiscal  year  li'll-lo  the  expenditures  from  votes  of 
credit  for  the  army  and  navy,  as  for  otlier  department-,  were  i!t 
addition  to  the  ordinary  grants  of  supply  i)reviously  made.     But 

'  .l/<ii:uu/  of  /:»ii'riy,-ii(v  l.igtihilio'i .  pp.  J90-401. 


ft  'X 


BRITISH    WAR   ADMINISTRATION 

beginning  with  the  year  lOl.vio.  the  army  and  navy  estimates 

£U0(  or  £100  for  each  vote  of  st,pply.  This  was  a  departure 
from  former  pract.ce.  where  votes  of  credit  had  been  in  addition 
to  the  ordmary  grants  based  on  peace  expenditures.  The  usual 
.  em.zed  estimates  and  votes  of  supply  have.  i,owever,  been  c"> 
t.u.nor  the  ordmary  expenses  of  the  civil  service  and  revenue 

1.    August  6,  1914 £l(W)fV,(innn 

f    arri'9^15''''^  ••■■■■•■■        '^''^^ 
•i.    .March   I,   1913 37,000,000 

'°^^'^orl9U-U £362,000.000 

5'   jir'is' Iq}? £250,000,000 

6    Jul  '/•,<?' 250,000.000 

•F=:r2i',<z^ ••■•   ^Sffir 

•    '  ^'^"'ao  22.  1916 120,000.000 

''"'="  ^°^  '"'^-'^ £1.420,000,000 

n    In!;'""-i.7iV '^'' £300,000,000 

2    ],?;  '>i    n   ; 3UO,(KK).000 

■  !'h;::;^r.V'';'i"  ■•'■■■■   '«^ 

16.  March  fs. ,.,7.:::::::;:::;;    'S;!;!:; 

''■"'^'  ^"^  """-'' £2.010,000.,W0 

II   &;%';-■ ''''■ cxsn.ooo.ooo 

21.  n:^;;z;'"i5'^l^,7::;:::::::    S^S 

''"'"'  ^"^  "^'7-'« ~      £2,450.000,000 

II  hilakcrs  Almamick-.  1!)18,  j),  701. 


FINANCIAL    AnMlMSTRATION 


225 


War  Loans 

To  provide  the  funds  authorized  by  the  votes  of  credit  and 
to  meet  expenditures,  loans  were  made  from  the  Ije^inning  of 
the  war:  and  while  large  increases  have  been  made  in  tax  rev- 
enues, about  three-fourths  of  the  expenditures  during  the  war 
have  been  met  by  means  of  loans. 

As  the  first  measures  Treasury  bills  were  issued,  and  advances 
were  also  secured  from  the  Bank  of  Fngland;  and  such  tempo- 
rary measures  have  been  continued,  in  the  intervals  between  the 
loans  for  longer  periods.  The  first  of  the  larger  war  loans  made 
in  Xovember,  r.»14,  was  for  t:;!.")(),(»(t().(lO(),  at  ."i'/i;  per  cent,  issued 
at  '.I.I,  Subscriptions  up  to  the  end  of  the  fiscal  year  (March  ."II, 
IJtl,-))  yielded  £2!t(),()()0,()(it».  In  addition  :',  per  cent  five  year 
Exchequer  1k)ik1s  were  sold  to  the  amount  of  nearly  {;48,00{),()()0; 
while  the  net  receipts  from  Treasury  bills  and  iniscellaneous  l)or- 
rowings  amounted  io  about  t:L':2(),(»0(),0()(t,  making  a  total  of 
war  loans  for  the  year  l!)14-ir)  of  tnc.d, 000,000. 

In  June,  101,'),  a  .second  war  loan  of  £(;00,000,000  at  4Vi  per 
cent  was  offered ;  and  in  September  of  the  same  vear  an  Anglo- 
French  loan  of  $.")00,00(),000  at  5  per  cent  was  arranged  for  in 
the  United  States.  Including  Treasury  bills,  Exchequer  bonds 
(at  y  and  ")  per  cent)  and  other  borrowings,  the  total  net  re- 
ceipts from  loans  for  the  fiscal  year  ll»ir)-li!  amounted  to 
£l,l(ir.,ooo,000. 

In  the  fiscal  year  l!ll(!-17,  another  general  war  loan  was  made 
for  nearly  t;MI0,(»00,000;  Exchequer  bonds  (at  5  and  •">  per  cent) 
were  sold  to  the  amount  of  i:-24(),oo(),(M)0;  and  Treasury  bills 
and  other  borrowing  made  a  net  total  of  loans  for  this  year  of 
.i;i.0L'O,OO(»,()0O.  In  I'.MT-ls,  the  net  total  of  loans  amounted 
to  about  t:L',000,ooo.ooo,  including  Treasury  bills,  E.xchequer 
bonds,  additions  to  the  4  and  .''i  per  cent  loan  df  I'.HT,  aliout 
£,"iO(),00(t,0()()  loaned  liy  the  United  States  (lnvcrnment,  w.ir 
savings  certificates  anil  national  war  bonds. 

The  principal  items  in  the  war  loans  (or  the  several  _\ears  are 
shown  in  the  following  table:  ' 

'  l^  I..  Ilogart;  lHit\t  Costs  of  tl.       '  .•scut  ll\ir,  pp.  0-13. 


226 


&'^ 


BRITISH    WAR    ADMINISTRATION 

(In  .\raLioNs  of  Pounds) 


1914-15 

1  reasury  bills  ( net ) £  fii  55 

t.xchequer  bonds.  ..  47 '70 

uwioan:.'°^";::::.  ;•••■•  ^-"^ 

s'}r  .\iigIo-Frcncii  loan.  .  

Miscellaneous     ]^;,m 

Loan  from  U.  S.  Govt......  , 


Total 

Less  repayments 


1915-16 

£    488.8 

1170.1 

35,S 

592.0 

50.0 

30.0 


£565.75 


£1.375.7 
160.4 


Net    loans. 


1916-17 

£  *  102.2 

352.0 

1917-18  to 
Dec.  31,  1917 

£1,058.0 
82.0 

780.0 
110.0 
413.0 

'  218.0 

46  0 
409.0 

£1,757.2 
4.4 

£1.813  0 
25,0 

■  Xet 


t  Net  - 


amount  retired. 


£U1S.3        £1,752.8 


£1.788  0 


mount  retired  £25,800,000. 


The  London  Economist  (February  23.  lOlS)  nbr^.  th«  .  »  . 

^.  incU...,ness  of  ere.  Britain.  £.or^O^.S:n:^^^^ 
ar>    10.   ],.ls,  a,  compared   w,th   £710.r.00.()00  on   AitRust    1 
l.'H.  an  increase  ot  £4.!..i,s.„„>.„oo.  „r  im.2  per  cent      Frr.ni 

Fd,rn    r .:"   .nr"T"  ^^"'r'^  ""''  '''''''  ^1.444.000.0.,,.  o, 
^el,ruar^   ...  lin.s.  mak.ng  the  net  debt  on  February  1.1    l-.is 

approxtniately  £4.430,000.00...  or  $21....-.s.,K)O.00o.  "  Deta  ;  of 
the  public  debt  are  giyen  in  the  folloxving  table.  ' 


(In  MlLLlO.Ns  OF  POU.NDS) 


Au(f.  1.    Mar.  31. 
P     ^    1   I  ■  '^'•*  1915 

29.6 


Terniitiable    annuities 
Lnfunded  debt : 

^^■/'    war   stock 

4'-j''    war    stuck.  ..  . 

■i^r  and  S'/r  war  <tock. 

Natinnal  war  bonds 

1  reasury    bills "]i;  5 

I'.xolieijuer   bonds 

\\ar   savings   certificat 

War      expenditure      ce 
tdicates     . , . 

Otber    <lebt '.','.,',' 

American  loans.  ....... 

Temporarv  advances 
"tiler  capital  liabilities 


20.5 


28.0 
349.1 

77.2 

67.4 


Mar  31, 
1916 

£    3185 
26.1 

628 
900.0 


I  (( 
57.2 


Total    lialnlitiis. 


556.8 

1770 

1.4 


9  2 
51.4 
19.9 
56.7 


Mar.  31. 

1917 
£    3178 
24.0 

62.7 

200 

1  ,'162.4 


4(u.7 
3203 

74,5 

23.6 
31(,5 

51.4 
217  5 

52  2 


Feb.  16. 

1918 
£    317  8 
24.0 

(^27 

20.0 

2.086.9 

363,9 

1,054.8 

402,0 

120.3 

23,5 

Kol.v 

51.4 

2.i;,K 

512 


57,0 
7/'.-  /:r,.-,,„„„,  ,r,.rUI.  .\pril  27.  1918,  „.s„  vol. 


XV,  \o.  17,  p  593. 


FINANCIAL    ADMINISTRATION  227 

Several  rommittees  were  appointed  to  assist  in  encouraging  in- 
vestors to  tai<e  part  in  the  war  loans.  '  In  July,  l'.)ir.,  a  War 
Savings  (Irish)  Committee  was  formed,  to  impress  upon  the 
people  of  Ireland  the  necessity  of  efTecting  econ(jniies  during  the 
war  and  the  desirability  of  investing  in  the  war  loan. 

In  December.  liU."),  a  committee  was  provided,  at  the  National 
Debt  Office,  to  control  the  operations  of  the  Treasury  for  the  pur- 
pose of  carrying  into  effect  the  government  scheme  for  the  sale 
to  and  deposit  with  the  Treasury  of  .\merican  dollar  securities 
in  connection  with  the  regulation  of  the  foreign  exchanges. 

About  the  same  time  another  committee  was  appointed  at  the 
Treasury,  with  Mr.  E.  S.  Montagu  as  chairman,  to  consider  the 
best  methods  of  obtaining  contributions  to  war  loans  from  small 
investors.    This  committee  reported  on  Januarv  2tJ.  ll'K!. 

A  War  Savings  (Xational)  Committee  was  established  in 
February,  l!»Hi,  to  inculcate  the  necessity  of  saving  for  the  suc- 
cessful and  efficient  prosecution  of  the  war  and  investing  in 
government  securities,  especially  war  savings  certificates. 

In  May,  I'JIO,  a  War  Saving.s  Committee  for  Scotland  was 
appointed. 

The  War  Loan  Act  of  December,  1!)H!,  is  especially  notable 
for  the  unlimited  discretion  vested  in  the  Treasury  as  to  the 
maimer  and  conditions  of  the  loans  authorized.  The  act  pro- 
vides that : 


■s 


Any  money  required  for  the  raising  of  any  supply  Rrantcd  to  His  .Majesty 
for  the  service  of  the  year  ending  the  31st  day  of  .Marcli,  1917  .  .  .  may 
he  raised  in  such  manner  as  the  Treasury  may  think  f^t,  and  for  that  purpose 
tluy  may  create  and  issue  any  securities  by  which  any  public  loan  has  been 
raised,  or  such  other  securities  bearing  sucli  rate  of  interest  l  A  subject  to 
such  conditions  of  repayment  redemption  or  otherwise,  as  they  think  tit. 


i 


Taxes  and  Revenue 

While  the  greater  part  of  the  war  exiK-nditures  have  been  met 
by  means  of  loans,  the  British  ("lovernment  early  provided  for 
additional  taxation  to  meet  part  of  the  burden.     The  regular 

'  l.ibcinl  y.ar  Hook,  1917,  pp.  149,  loj,  163. 


22S 


BRITISH    WAR   ADMINISTRATION 


i 


than^-l^.oo;,     ,    've^  n  !cH^  ^-es  amounting  to  „,ore 

still  further  t..e.ZZXZ  Z      VT'     ^"  ^^^'^^^^^^  11>14. 

over  f,,.ooo,.;;  d  ti z  Th: "' h""  ^"■'"^^^^  ^^^  --'^' 

year  enclin.  March  Tm,  T,'  '^""'  '''''P''   ^^'^  '^e 

-;M)oo.^etha:';o:';h:^;ir;r''"-"^"-  ^'-^-^  ^^^'- 
pC:";;:t;;:;tc^:r  tt^l^""^v^"^'-^  ^-  — 

tures   mounted   a   more   vil'r  "'  ^'  "^^  ^-^P^"^'''- 

Sep.embersti!l4e7^te'o  r  ^  ""'  ""  "'"^^^^ -•  ^^  - 
'"  the  mcome  and  I^^,  '^^^^^^  '"''''''''  '''''^'^■ 
war.  mtroduced.  bringing  the  total  J  .,  ''''''  '''^'  ^''^^^^ 
OOO.OOO.     The  new  in,!  f ;  J  ^"^'""^ted  revenue  to  JE;]05,- 

amounted  t.  more  than     .    c    I  '    o^  "  """'^  ''"  '"  ^'^^^ 
per  cent  over  ]!)l4-i.-,  '"''^^^'^  "^  ^^^^i  50 

excess  profits  tax  was  increa  e  rom  '^o  TJ cT '  '""  ""  "^  ^''^ 
and  excise  duties  were  dorbled  nnT  ,  ?  ^"  ""'•  '^"■^'O'"-^ 
■""irect  taxes  were  intro^ed  '^^teTe  "'^'"^"^"  "^">-  -- 
^^:.'.'.-i.n(.().o„„  new    -even,^  !  '"^'^  estimated  to  vield 

-venue  receipts    or  the    4r":h-:h;r''  °'  f  ;0,000,)00.    'xhe 
to  £57;j.o„„,oo(,.  about  70  ner'  '-'''''^'^  ""■^-  ^n^ounting 
year,  and  nearlv  t  re    timesthe"      ""'  ^'•''"  '"'^  "'^  P— - 
The  budj^et  for    '  ,7  "s  „  T""'  °^  '^'  ''''  '''^-^^-  ' 

additions  t^  the  J'r^Jlj";!::^  T  " '  T'^^^^'^^'^'  ^"^'^' 
for  the  uKreased  interest  d  ;,Jr  , ^r  T,"  """''  "  ^^^^ 
profits  duty  uas  again  incrca;;d.  ^^  ^r^.  e  '^  ""^  "^  "^^^^^^ 
fnnn  excise  taxes  decreased  sh-irnlv  ^''^  '^''^""e 

■"  -nsu:np,inn  of  linuo"  ^  ^^  ,  'i:^'^"^  "'„"-  reduction 
-"1  execs,  profits  .axes,  yie.de  Z^:;;:;;;;;!"^-  '"^  '"-- 
previous  year  and  ,he  estimates      The"  "'        '''  "'" 

year  exceeded  the  estin.tes  In     bol' u  /S^r''^'-^  ^  ^"e 


FINANCIAL    ADMINISTRATION  229 

£707.000,000.  aI)out  20  per  cent  more  than  the  preceding  year. 

The  new  and  higher  taxes  were  aflministered  by  the  I)oards  of 
customs  and  inland  revenue,  in  existence  before  the  war,  and 
did  not  involve  any  radical  reorganization  of  the  revenue  serv- 
ices. An  additional  agency  of  some  importance  was  the  Excess 
Profits  Duty  Board  of  Referees,  a  body  of  2!i  members,  ap- 
pointed to  con.-ider  appeals  and  applications  in  connection  with 
the  excess  profits  duty.  ' 

The  following  table  shows  the  principal  sources  of  revenue 
receipts  for  each  fi.scal  year,  beginning  with  1!>1:3-14: 

BRITISH  REVEXUE  RECEIPTS 

(I.N    TllulSA.NUS   OF    PuUXDS) 

19U-14  1014-15  191516  1916-17  1917-lS 

(a.)  (b)  (c)  (d)  (e) 

Customs     £  .?5,450  £38.662  £59.606  £70,561  £  71  '61 

l^.'^'f,--. fASW  A2.3U  61.210  56,380  38772 

Estate  duties 27,3d9  2)i.3S2  31.035  M.23>  31  o74 

f""!Pf  9,%';  7.577  6,764  7,878  S.m 

House  duty 2,(X)0           1,«J30  1,990           1 940  C  2.62j 

Income  ta.x  47,249         69,399  128,320  205.033  239  509 

Excess  profits  tax 14,,  ijyy,,,  22o'_'14 

Land  value  duties 7L>              412  363              521  o85 

Total  tax  revenue...    £16,3.029     £189,305     £290.088     £514,105     £613  040 
Aontax    revenue 35,214  V.M>  46,679  59.323  94'.194 

Total    revenue £198,24'.     £226,694     £336,767     £573,428     £707,234 

(a)  The  Times  lILt.>:y;  of  the  liar,  vii,  ch.  114  p  259 

(b)  II  hl•^k•cr^s   .llniaiuHi:.    1916,   p.   494. 

(c)  I'arliamenlarv  I'apers,  1916,  \o,  64 

(d)  /bid..  1917,  .\'o.  71. 

(e)  The  licoitcmic  World.  May  11,  1918.  n.>.,  xv.  |).  667. 

The  table  below  sunimarize.s  the  tax  and  revenue  receipts  by 
fiscal  years : 

'  Uberal  Year  Hook.  1917,  p.  153. 


230 

BRITISH    WAR    ADMINISTRATION 

TAX  AND  REVENUE  RECEIPTS  AND  EXPENDITURES' 

(In  Thousands  of  Pounds) 

v„f        ij^°**'  Ratio         Ratio 

Net        Revenue  of  Tav     «f  t-  .  . 

\':T    ""^T     T  t  ,  E      '^-^IAs     Re7enL\! 
Ending  Mar.  31  TaxTiT^n  tt     u^      ^°'^'  E""    'o  E*-       to  Ex- 

8  Taxation  Exchequer  penditure  penditure  penditure 

1915  ••     {^-"il        mm        197,493         82.6  100.4 

1916  200871        ii^v^i     .  ??"'-^74         33.9  40.4 

Auk.   ^19.4,   to-  March     '"■'"'^       707234     2.6%^]^         §1  3^] 

•^'-  '^'**  1,779,187 

from"al!"oter"sour?;:r  ""'"'^   '^""^  ^-'°-'  -"^  "cise  and  net   receipt, 

a  h^ftZZ  "'T'^J'''  '"^'-'^  -ere  more  than  three  and 
a  half  times  those  for  the  last  fiscal  year  before  the  war;  while 


£.r/>^nrfi7Mrrj 

ha!e  ^e n't ''  '''  ""'  "'"'  '^■^-  '""^  '^"'^^  ^°— -'  ^^ere 

/eafan,!  h-i  «  ^"7"""^"^=*  ^f  Canada.  Australia  and  Xew 
/:ealand  have  financed  the  cost  of  their  armies.  South  AfricI 
h  s  borne  the  whole  cost  of  the  war  in  South  West  Afri  a  nd 
a  large  part  of  the  cost  of  its  forces  in  East  Africa     The  larger 

irBnti'r^r ''"^^,  '\'''  '"""■^"  ^--^  has  been' met  ; 
the  Bn  ,sh  l-..xche(iuer:  !u,t  the  Indian  Government  has  had  con 

-Ic-rab  e  payments  and  has  contributed  i-,00.000.,.0.)  tow  nl  the 

OS    of  the  war.     Contributions  have  al.so  i,een  made    n     ,  e 

crown  .o.on.es.  protectorates  and  the  native  princes  and    hi 


(;W  VX:Z  l!i"{i^^^^;!,''-  '^>*'.  "-•  XV.  p.  S93  (Sources:  London 
1917);  The  Lcomm.c  IV arid.  May  11,  1918,  n.v,  xvt  p   667   ^^  Revenue, 


FINANCIAL   ADMINISTRATION  231 

The  following  table  shows  the  distribution  of  expenditure  for 
the  fiscal  year  lOlS-Ki: ' 

Consolidated   fund  services £      7 5  488  (WO 

Supply    services 86.'018.'00() 

Army  ( token  votes  ) £  15,000 

-^avy         ■          ••      7!000 

Ministry  of  Munitions  (token  votes) 2,000 

Civil  services 54,718!000 

Kevenue   departments 4,603.000 

Post  ofticc   services 26.67,3,000 

Votes  of  credit 1.399,652,000 

1     E.xcesses  of  accounts  of  votes  : 

Army   £526,698,000 

Navy    205.717,000 

Munitions  224.639(X)0 

Civil  services 2,1 18,(X)0 

Revenue  departments  3,538,000 

Total    £%2.710.00O 

1 1     Outside  parlianientarv  votes  : 

Treasury— Loans    .' £315,%7,00O 

Hank  of  EiiKland 30,S'W,000 

Exchange  account   53,375,000 

Total .£3')9,04 1.000 

Board  of  Trade  10.787.000 

Other  departments   20.211,000 

Total    £430.y3y,(K)0 

Total  expenditure   £  1.5.'    158.000 

Issues  to  meet  capital  expenditure J. 570  0(«) 

.Advances    3.807.000 

Redemption  of  unfunded  debt   48v.3%,000 

Balance.  March  31,  1916 25,575,000 

Grand  total   £ 2,2 17.0%,000 

Control  over  F\,ianccs 

The  stupendous  expansion  of  expenditures  on  account  of  the 
war  has  involved  a  suspension  in  larf,'e  [lart  of  niucli  of  the  ma- 
chinery for  the  control  of  },'ovemment  finances  in  (Ircat  Britain. 
As  already  r  'ted,  the  great  hulk  of  the  goverinneiit  expenditures 
have  been  authorized  under  lump-sum  votes  of  credit  for  liun- 
dreds   of   millions   of    pounds,    with    no   detailed   estimates   or 

'  Parliamenlary  Papers.  1916,  N\>   54:  1917,  Xo.  64. 


232 


BRITISH    WAR    ADMINISTRATION 


'■4 


itemized   appropriations.     The   expenditures   made    from    such 

bu    also  the  ordinary  expenses  of  the  armv  and  navv  an.i  in 
add.fon  the  expenditures  of  the  new  ministries.  departn,ents  u  d 

ii^i^d;:^er^''^"'""^ "  '-^^^  "^^  -•*--  ^""  -"^  ^- 

As  a  result,  the  usual  forms  of  parliamentary  control  over  ap- 
propriations are  no  longer  in  force  for  more  than  IT,  per  cent  of ' 

been  ,ha  ot  the  Treasury,  to  which  the  votes  of  credit  are 
made  But  wh.le  the  Treasury  has  rec.uired  preliminary  e  ti! 
mate,  for  additional  allowances  from  the  votes  of  credit  for  the 

Trl77"  f^P^'^'"^"'^-  '^''^  h^ve  not  been  required  for  the 
gre^t  hulk  of  expenditures  for  the  army  and  natv  or  for  the 
munitions  and  other  new  ministries,  departments  and  agencies 
A  hrst  step  to  examine  the  possibilities  of  reducing  expendi- 
tures was  taken  by  the  Treasury  in  July.  1.,.-..  when  a^Retrench- 

7^Z.  7  u- ""  '"'"'"^"'^ "'"  ■■"^"'■•^  •-'"^'  '■'^p"'-^  -h'-^t 

ere  te^d  I      T  "^'""f  "^^  ""•   '"  view  of  the  necessities 

detr  me '•      V'        ^"''"'"'  '"  '''''  '''''  ''^P-^ments  without 

Lenn-,  ,  '\  ""''  Chancellor  of  the  Fxcbequer  Mc- 

Kenna  as  chairman,   Mr.   E.   S.   Montagu.   Financial   .Secretary 

:;he;;ix  •■•  ^^^■^^^"  ^"^^  -^"'"^^^  -^^  '-'^----  -"•  -- 

Thi.  committee  submitted  three  preliminary  reports,  in  Sep- 
en..er  and  December,  IIU...  and  January.  I.i.i.  a'.d  a  final  r  - 
P^^  onl-d,ruary  .,.  l.„,  ■  These  reports  discussed  in  turn 
man>  o  ,he  c,y>]  service  departments;  hut  dealt  for  the  mo.t 
part  with  minor  details,  although  some  plans  for  administrl  ye 
reorganization  were  proposed.  The  final  report  called  atte  t, 
to  .he  increase  in  the  civil  service  estimates  since  IM...    f  om 


'  Pjr'.icmcnta. 


;.  f\,pers.  I9U-1916.  Cd.  8048,  8139,  8180,  8200. 


FINAXCIAL   ADMINISTRATION 


233 


•=5 
1 


£10.000.000  to  £.-.ft.OO(t.(>(io.  due  to  new  grants  and  new  services, 
such  as  old  age  pensions,  national  insurance  and  education.  At- 
tention was  called  to  measures  already  taken  to  secure  economies. 
The  recommendations  included  the  establishment  of  a  uniform 
eight-hour  day  in  government  offices,  a  reorganization  of  the  sub- 
ordinate department-  .;i  the  Board  of  Trade,  and  a  cons.jlida- 
tion  of  the  f<jur  insurance  commissions,  and  referred  t..  other 
suggested  changes. 

Xo  thoroughgoing  plans  of  reorganization  nor  far-reaching 
plans  for  improvement  were  urged  by  this  committee,  even  with 
respect  to  the  civil  service  departments:  while  its  scope  was 
limited  to  what  had  become  a  relatively  minor  part  of  the  field  of 
government  e.xpenditure. 

Some  measures  were  al-f.  taken  by  a  few  of  the  larger  spending 
departments  to  con-ider  the  ;iroblem  of  -^.xpenditures.  In  Xo- 
vember.  ll»l.j,  a  Mini>try  o:  .Munitions  Committee  on  Expendi- 
tures was  appointed,  t.  review  the  expenditure  of  the  Ministry 
and  to  secure  econom\ .  '  Later  a  Munitions  Finance  Committee 
and  a  Munition:^  Financial  .Advisory  Committee  were  formed, 
liut,  as  i-  noted  elsewhere  in  this  report,  the  financial  methods  uf 
this  Ministry  continued  to  be  extremelv  la.x. 

In  January.  I'.tlt;.  a  War  Office  F.xpenditure  Committee  was 
appointed  to  con>ider  pos.-.ibi!ities  of  economy  in  the  army  ex- 
penditure. Mr.  W.  H.  Long  wa-  chairman  of  this  committee,  on 
which  General  Sir  W.  Rcjbcrtson,  Chief  of  Staff,  was  a  member.- 

.\  Treasury  Committee  on  War  b.-xpansion  of  Ciovernnient 
Departments  was  also  appointed. 

The  (-pinion  in  favor  ni  more  effective  supervi-ion  over  finances 
wa-  indicated  in  the  rep.,rt  of  the  Hon^e  of  Commons  CMnimittee 
on  I'ublic  .Accounts,  on  July  ;;i,  luiT.  which  urged  that  c-timates 
more  closely  approaching  those  ui  n.  rnial  times  lioth  fnr  the  light- 
ing services  and  for  new  departments  l,e  char.tjed  to  the  vtes  of 
credit." 

A  Treasury  minute  of  .Vovemlier  1,  IHIT,  rephing  to  this 
recommendation,  cijiisidercd  the  proposal  imjjractical  and  against 

'  t.tbcrc.l   I'cnr  ilmk,  1917.  p.   155. 

'■  lb,d..  |i    U.2. 

'  I'arbamcniary  intirs.  V)\7.  \o.  \2^. 


234 


BRITISH    WAR   ADMINISTRATION 


he  pul,l,c  mterest;  hi,,  stated  that  there  would  l,e  submitted  with 
he  esfmates  a  statement  of  the  services  for  which  provision  is 
o  be  made  trom  the  votes  of  credit,  and  that  the  practice  of 
token  estimates  would  I,e  extended  to  all  new  departments  pre- 
sided over  by  responsil-'f  ministers.  >■ 


:A 


hi 
.'■I 


Committee  on  National  Expenditure 

luk'  ";;'-";:'!/''  ^  ''?""■""  ■"  ^'^^  "'--  "^  Commons  in 
\a  i'on.    V-  r  '°"'^".':^'^'-  fi"'-'"^--  a  -Select  Committee  on 

Nat  onal   hxp^ul.ture  w.th  broad  powers  of  inquirv  was  ap- 
pomted.     Mr.  Herbert  Samuel  (one  of  the  former  MmistersTn 
he  Asqu.th  Cabmets)  said  of  the  existing  .system,  even  before 
lilt  w  ur , 

Mr.  Samuel  also  analyzed  in  turn  the  present  methods  of  con- 
tro  .  wnhm  the  departments,  by  the  Treasury,  bv  the  Controller 
and  Audnor  General,  and  by  the  House  of  Common.  ^ 

Ihe  suvernment  agreed  to  the  appointment  of  a  Select  Com- 
mittee under  the  following  proposed  terms  of  reference: 

That  a  Silcci  Committee  be  .ippointed  ■ 

.He  .ec.,on  of  the  poHc.  decide^^;^"s  ;;:'^v=:r.^:r;:"'S 

'  l'arhamcntar\  Tafers.  W\7    .\,,    17] 

■  I'arhamcniary  I'cbalcs.  vol. '95.  1554  (July  6.  1917). 


FINANCIAL    ADMINISTRATION  j;i5 

'2)  to  make  rtcommendations  in  regard  to  the  form  of  parliami  ntary  esti- 
mates and  accounts,  the  «yit.m  of  control  witliin  the  departments  and  hy 
the  Treasury,  and  the  procedure  of  this  House  in  relation  to  supply  and 
appropriation,  so  as  to  secure  more  etTective  control  by  Parliament  ■■ver 
public  e.xptnditure:  and  to  have  power  to  appoint  one  or  more  subcommittees 
to  mvestiKate  such  matters  as  the  committee  may  deem  necessary  tor  the 
purpose  of  making  such  recommendations,  and  the  committee  may  apponit 
from  outside  its  own  members  such  additional  members  as  it  may  think  tit 
to  serve  on  such  subcommittees  ' 


The  order  tor  the  cummittee  was  passed  on  Jiilv  lT),  the  com- 
mittee to  consist  of  :>•;  members,  with  :>  as  a  quorum,  and  with 
power  to  send  for  person-,  papers  and  records.  -  Mr.  Herbert 
Samuel,  a  memljer  of  the  Asquith  Cabinets,  not  in  office,  was 
appointed  chairman. 

A  special  report  of  the  committee,  on  .August  1,  announced  the 
appointment  of  si.\  subcommittees  on  (1)  the  War  Office;  (2) 
the  Admiralty  and  Ministry  of  Shipping;  ( ;5 )  the  Ministry  of 
Munitions  and  Air  Board;  (4  )  the  Ministry  of  Food,  the  Wheat 
and  Sugar  Coinmissions,  the  Board  of  Trade,  and  the  Ministry 
of  Blockade;  (.". )  the  Ministry  of  Works,  the  National  Service 
Department,  the  Ministry  of  Labor  and  the  Post  Office;  ( tl ) 
the  Treasury.  ^ 

.A.  first  report  was  submitted  by  the  committee  on  Octoljer  24 
on  the  War  Office,  the  Ministry  of  Munitions,  the  Wheat  Com- 
mission and  the  Ministry  oi  National  Service.  The  committee 
criticized  the  departmental  control  of  finance  in  the  Ministry  of 
Munitions  and  recommended  that  one  parliamentary  secretary 
of  this  Ministry  be  charged  with  finance,  and  also  recommended 
a  larger  degree  of  Trea.surv  control.* 

A  second  and  more  inq)ortant  report  was  submitted  bv  the 
committee  on  December  i:!,  I!tl7.  Up  to  that  time  the  committee 
and  subcommittees  had  held  l;i2  meeiin;^s  and  examined  1S2 
witnesses. 

With  reference  to  parliamentary  estimates,  the  committee  re- 
ported that  estimates  for  war  expenditures  would  be  almost 
valueless,  and  for  the  more  important  votes  not  compatible  with 

■  P'id.,  v.il  96.  344-345  (1917i. 

•  /bid.   UlL'. 

' /"ijri'iiiHic  iifdrv  i'apcr.^,  Iv'i/,  li.C.  125. 

'  Ihid.,  H.C    151. 


a{.«£ir$iSf 


236 


ERITISH    WAR   ADMINISTRATION 


the  public  interest;  Inn  recommended  that  estimates  shoul.l  be 
submutec  for  some  of  the  new  departments,  for  example  , ho  e 
connecte.!  with  the  Board  of  Trade. 

Because  „f  ,he  absence  of  parliamentary  estimates  the  com- 
m.ttee  considered  the  Treasury  control  over  e.xpenditure.  " 
W'eca,  ,n,portance.  The  control  exercised  was  far  short  of  the 
rffV!!-  's  "''•  ^"^'  ^'^^"'^  ^  -^^eased  and  the  Treasury 
t,  th.  iTT^  '^°"'''  ^  ^"'^^«^^-  -^"^"tion  was  called 
La  f^'%}^^^^^^^'^^^  the  new  Ministries  of  Munitions. 
Labor,  rood  Shipping,  the  .Air  Board  and  Xational  Service 
ve.  not  subject  to  Trea.sury  control;  while  appointments  on" 

rtsu   iert'r  ''"''  "'   ''^"^'°"^  ^"'^    Reconstruction 

^^ert  subject  to  Treasury  sanction,  as  was  usual  in  the  case  of 
new  services  established  betore  the  war 

Conditions  and  methods  in  a  number  of  departments  were 

the  War  Office  .staff,  from  21S  to  l.oOO.  and  to  the  lack  of  co- 

'ng  land^.     The  revival  ot  the  Controller  of  the  Naw    vvhich 

N  a.  noted  that  there  were  no  estimates  of  costs  in  the  national 

r    percent'   Som"  '''  '"''  "^  "^^•^'  ''''''^'''^^  '^'  --- 
.  '  per  cent.    Some  minor  recommendations  for  concentration  of 

organization  withm  the  Board  of  Trade  were  made.     Mor    "eri! 
ous  criticism  w^s  made  of  the  Employment  Department  of  the 
-Ministry  ot  Labor  with  reference  to  salarip=  r^ft;^^ 
and  financial  reports.  ■  '  ^"  ^^"-^"gements 

The  Select  Committee  on  National  Expenditure  was  renewed 

and  , he'  ''"'^^'"t  '''"■''  ''^^"''^"^'  ''P'^'''-  ■■  The  creation 
and  the  work  of  this  committee  indicates  and  emphasizes  the 
need  or  more  active  supervision  over  estimates  a.u  anpropria- 
t.ons.  both  by  the  Treasury  and  the  House  of  Commons''    ' 


l4 


E  ^^^^Hfei^T^HIt 


i.'s.. 


CHAPTER  XII 
Other  Departments 

Foreign  Office 

At  the  outbreak  of  the  war  Sir  Edward  Grey  was  Secretary 
of  State  for  Foreign  Affairs  and  he  held  this  pciilion  until 
December.  191 «.  When  he  liad  tir-t  ccnme  Foreign  Secretary 
in  1!»0.')  the  British  Oovernment  had  already  begun  the  ])'ilicv 
of  entering  into  closer  relatione  with  France.  Cirey  had  <  n- 
tinued  this  policy,  and  in  1007  reached  an  understanding  with 
Russia.  Etiforts  were  also  m?cie  to  keep  on  good  terms  wh 
Germany  and  shortly  Ijeforc  the  war  the  terms  of  a  propn-,ed 
agreement  had  been  formulated  with  regard  to  the  Bagdad  Rail- 
way and  the  Portuguese  colonies  in  .Africa.  During  the  Balka 
wars  of  ll»l:2-l!ti;5,  Grey's  efforts  were  largely  responsible  foi 
confining  these  conflicts:  but  his  efforts  in  the  same  direci-oi  in 
the  diplomatic  correspondence  of  the  end  of  July.  l'.>]4.  wert  not 
successful. 

After  the  beginning  of  the  war,  under  Grev's  leadershiii      n 
agreement  was  entered  into  Ijetween  Great  Rritairi.  France  ar.d 
Russia  that  none  would  make  a  separate  peace  with  (icrman- 
This  agreement  was  later  joined  by  Italy  and  other  .-\ll:t>      ' 
1915  efforts  were  again  made  to  revive  the  lialkan  League:  a: 
after  the  failure  of  this  project,  the  crushing  of  Serbia  and  th. 
collapse  of  Roumania,  Cirey  retired  from  the  Cabinet  with  M^ 
Asquith  in  December,  I'.nO. 

.\s  the  war  progressed  a  series  of  interallied  organizations  ha\ 
been  formeii  for  dealing  with  various  problems.     From  time  ' 
time  there  have  been  conferences  of  .Allied  ministers.     More  coi 
tinuous  agencies  were  established  for  economic  and  administra- 
tive purposes.      In  .August,  1!»14.  a  Cutiimissiou  Internationale  dc 
RavitaillcmcHt  was  formed.     In  December,  1915.  arrangements 

237 


238 


BRITISH    WAR    ADMINISTRATION 


were  made  for  the  joint  purchase  of  wheat,  flour  and  maize  for 
the  British,  French  and  Italian  Governments.  A  year  later  a 
Wheat  Executive  was  established  for  this  purpose;  and  its  func- 
tions have  since  l)een  extended  .o  other  cereals.  Similar  agencies 
have  !)eer  provided  for  meat  and  animal  fats,  vegetable  oils  and 
oil  seeds,  sugar  and  nitrate  of  soda.  Other  joint  agencies  were 
set  np  for  hides,  wool  and  wool  products,  certain  explosives  and 
raw  materials.  Spanish  lead,  copper,  Russian  supplies,  Roumanian 
supplies,  the  chartering  of  neutral  vessels,  and  for  requirements 
in  the  United  States.  ' 

In  the  Lloyd  George  Ministry,  the  position  of  Secretary  of 
State  for  l-'oreign  .Affairs  was  given  to  Mr.  Arthur  James  Bal- 
four, who  had  been  Prime  Minister  and  leader  of  the  Unionist 
party  from  ]'.)(»■_>  to  I'M):,.  His  administration  in  the  Foreign 
Office  has  been  marked  by  the  revolution  in  Russia  and  the  with- 
drawal of  that  country  from  the  war  and  by  the  entrance  of 
the  United  States  into  the  contest.  In  the  spring  of  11)17  A'r. 
Balfour  came  to  the  United  States  at  t'-e  head  of  the  British 
mission  to  consult  with  reference  to  pob  ■,  and  plans.  .\  spe- 
cial mission  was  also  sent  to  Russia  in  Januarv,  and  another 
in  June,  I'.HT. 

Durmg  lit] 7  there  were  more  frequent  conferences  of  the 
leading  mimsters  of  the  western  Allies— at  London,  Paris,  Rome, 
St.  Jean  de  Maurienne,  Calais.  Folkestone  and  Rapallo.  In 
November,  at  the  conference  at  Rapallo,  an  agreement  was  made 
between  Great  Biitain,  France  and  Italy  (afterwards  joined  bv 
the  United  States)  to  form  a  Supreme  War  Council,  to  consist 
01  she  Prime  Minister  and  one  other  niii.:<ter  from  each  country, 
meeting  once  a  month  normally  at  \'er,sailles.  To  this  council 
was  attached  a  permanent  joint  military  stall.  In  December  a 
permanent  Allied  .\aval  Council  was  formed.  These  inter- 
allied agencies  have  continued  in  operation  during  the  year  ]!tlN. 
Considerable  expansion  has  taken  place  in  the  British  Mini.stry 
<if  Foreign  Affairs  during  the  war.  At  the  head  of  this  Mini.stry 
is  the  Secretary  of  State  for  Foreign  Affairs,  with  a  parliameti- 
'  Tlx-  11  \ir  Cihincl-  K,-f,<rt  j„r  thr  V.ar  I'.m,  pp.  18-20. 


is 


w 


OTHER    DEPARTMENTS 


239 


tary  iinder-secretary  and  a  permanent  secretary.  Before  the 
war.  the  followinj,'  departments  were  organized  within  the  For- 
eign Office :  Chief  Clerk,  American  Affairs,  Commercial  and  Sani- 
tary Affairs.  Consular  Affairs,  Far  Eastern  Affairs.  Treaties 
(including  Passports),  Librarian  and  Keeper  of  the  Papers,  and 
Registry. 

By  ItHT.  the  following  additional  departments  had  been  organ- 
ized for  the  war;  Parliamentary  de|)artment,  News  department. 
Passport  Oft'ice.  Prize  Court  department  and  Foreign  Claims 
Office.  ' 

Foreign  Office  committees  have  been  established  on  contra- 
band, detention  of  neutrals  (claims  to  compensation),  prize 
clamis  and  revision  of  treaties  with  enemy  countries. 

In  March.  I'.'lti,  a  committee  was  appointed  to  inquire  whether 
anv  avoidable  delay  had  l)een  caused  by  the  methods  hitherto 
adopted  for  dealing  with  ships  ami  cargoes  brought  into  British 
ports  under  the  Order  in  Council  oi  March  11,  ItU."),  and  to  make 
such  general  recommendations  as  they  think  tit  for  improving 
such  methods.  "' 

.\n  Enemy  Del)ts  Committee  has  l)een  established  at  the  Foreign 
Office  to  report  on  the  arrangements  to  be  adopted  for  the  liquida- 
tion of  the  commercial,  banking  and  other  financial  transactions 
lietween  British  and  enemy  persons,  the  completion  of  which  was 
prevented  by  the  iiutbreak  of  the  war,  and  for  this  purpose  to 
consider  the  returns  made  to  the  Custodians  of  Enemy  Property, 
and  to  the  Public  Trustee  and  the  Foreign  Claims  Oftice,  and  any 
information  on  matters  relating  thereto. 

.•\  I'.elgian  Trade  Committee  was  announced  in  .\ugust,  V.)\l, 
consisting  of  representatives  of  the  I'oreign  Office,  the  Board  of 
Trade  and  iJritish  commercial  and  linancial  interests,  to  investi- 
gate means  for  the  promotion  and  advancement  oi  trade  between 
the  British  Empire  and  I5eigium.  ' 

Retennce  has  already  been  made  to  the  Overseas  Trade  In- 


'  V/i,-  I-,>n-i,i)i  OHi.c  List  j«r  I'.^n,  pp,  5-(.. 

■  V.   S.  iommcrce  K,-forts.   ND.  54,   March  6,  1918;   Ibtd  ,  No.  208,  Sep- 
tfinlur  0,  1917. 


240 


BRITISH    \VAR    ADMINISTRATION 


Blockade  Ministry 

<=*,'    iracie  department,  Innance  Section   War  Tra,i„  r„»  n- 
gence  department.  Restriction  of  Fnem     S„nnl         , 
\Var    Trade    Stptkfi.oi    ^  •    '^"PP''^s  department, 

departrnent  >  "'    department,    and    Prisoners    of    War 


i 


Colonial  Office 

Common  .:;hrLo,,n''      v""'  '"'-^'  '"  ^'^^  "^^  •^^■ 

U-alter  Long   als^      Unbr't    ^  °'  ^'.'  ^-^^"^^^"^^  '''-'  ^^••• 
the  Colonies  "''  '^'"'"^  ^^^^'^^^  ^^  State  for 

n.i"«„  .„■  ,„e  vanC '^2  J:n^•  ;t:rr  r  '^' '"- 

and  to  aci  as  i  frp,n>r-,l  .i,.       i     -         "-"'"'"«e"ts  Associations, 

sisted  of  eitrht  member,   in.i  '  committee  con- 

cert   Parkefu  t      M  ■•  ^'^i;''"!:; '--'"t  Brvce  and  Sir  (li,- 

Secretar,fortheCoii;ies^s!^ha™l"'^"''    '''■'    '^^^^ 


'•  J^h  'T^'""  'n^'"''  ^'•"  /<"•  '•''''•  i.p 


S-6. 


OTHER   DEPARTMENTS 


241 


A  Prize  (Oversea)  Disposal  Committee  was  created  on 
Xovemijer  11,  l".»14: 

To  report  in  what  class  of  cases  it  is  expedient  that  prize  ships  captured 
or  detained  at  ports  outside  the  United  Kingdom  shoulil  be  moved  for  sa!e 
or  disposal  to  other  ports  or  .-hou'.d  be  chartered  for  purpose.-  of  trade,  and 
to  make  the  tiecessary  arrangtmeiits  in  such  cases  as  are  remitted  to  them  by 
the  departments  concerned  in  tlie  administration  of  the  territories  where  the 
prize  ships  arc  detained,  and  to  take  the  necessary  steps  for  chartering  lor 
use  in  Mritish  commerce  such  enemy  ships  detained  in  this  country  as  may 
be  required  for  this  purpose. 

This  committee  consisted  of  eight  members,  with  \'ice  Admiral 
Sir  E.  J.  Slade  as  chairman.  ' 

A  West  Indian  Contingent  Committee  was  formed  in  August, 
11>1.">,  at  the  instance  uf  the  Secretary  for  the  C(jIonie>.  Mr.  Bonar 
Law,  to  provide  for  the  welfare  and  coinf(  rt  i»f  the  men  of  the 
Bernnulian  and  \\  est  Indian  Contingents,  as  well  as  of  those  who 
hati  already  come  over  independently  and  of  others  who  mav 
come.  A  Ladies  Committee  \\a>  also  provided  to  assi-t  this 
committee.  ■ 

A  Xuts  an<l  Seeds  Conmiittee  was  appointed  in  August.  I'.'l.'i, 
to  consider  and  repijrt  upon  the  condition  and  prospects  (  i  tht 
West  .\frican  trade  in  palm  kernel-  and  other  edi!)Ie  and  <iil- 
producing  ntUs  and  see<ls,  ,ind  to  make  recommendations  inr  the 
promotion  in  the  L'nited  Kingdom  of  the  industries  depen<lert 
thereon. 

.\  Royal  Conmiission  on  tlie  Natural  Resource-,  Trade  and 
Legislation  of  cert.iin  |)ortions  of  I  lis  Majesty's  Dominions,  ap- 
pointed in  r.Mi',  ])reseiited  to  Parliamein  in  Xovemher.  r.'l.">,  an 
extended  meniorandmn  relating  to  the  food  and  raw  niattrial 
reipiiremeiUs  of  the  Cnited  Kingdom.  Thi-  included  detailed 
statistics  from  r.toi  to  I'.il-!.  showing  the  total  recjuireinein-. 
home  sui)plies,  amounts  from  lAer-eas  and  from  the  ilominioii.-. 
This  coininission  included  six  !neml>ers  from  the  L'nited  Kiii,;- 


'  l.ih-ral  >Vfir  P-.'.'k-.  1017.  p.  158. 
=  C'l.'iii.il  ('/«,■,■  l.i.ft.  1111(1.  p  \!ii. 
'  /..7vr,i/  y.-ar  Kook.  l'*17,  p    ISo. 


242 


BRITISH    WAR    AnMIMSTRATION 


d.>n,.  and  one  each  frnni  C  ana.la.  Australia.  New  Zealan.l   S<,uth 
Atrica  and  Newfoundland.  ' 

A  C„nnni,tee  „n  Colonial  FMue  Hooks  has  been  formed  to  con- 
Mder  an.I   rcpor,   to  what  extent   IMue   l^ooks  an.l    Mhu-   Ho  k 
epor  s  n,eet  ex,stu,jr  re„uiren,ents.  an.i  whether  anv  steps  c  , 
retake,,  to  „.prove  or  supplement  then,  or  make  then,'n,ore 

An  Hmpire  Settien.ent  Committee  has  heen  estal.Iished  a,  the 

oIon,a Othce  to  consi.ler  and  report  o„  the  n,easures  to  he  taken 

t.T  setthn,^  w,th„,  the  I-n.pire  ex-soldiers  who  n.av  .lesire  Z 

ennsrate  after  the  war;  to  collect  and  prepare  for  distril     i. 

mfonna.,on  as  to  the  facilities  otTered  h,  the  government  o 

.  .nnn..:  and  to  make  recomn.en.Iations  for  the  constitu,  ':^ 

-r  a  central  authonty  to  supervise  and  assist  such  emij^ration    ■ 

A  .,n,nt  co„„„„tee  oi  the  India  and  Colonial  Offices  has  heen 

appo-nted  to  ass.st  disabled  or  invalided  officers  who  mav 

les.rouso,  o,tauungen,ployn,ent  in  India.  Burma,  the  I-a^tern 
colomes  and  Malay  States.  ' 

The  Colonial  Office  al.so  took  an  active  part  in  the  Imperial 
Conterencesot  ]!)17  and  litis  '"pt^nai 


Educatiov 

The  war  has  had  important  and  far-reaching  effects  on  the 
K   t,onal  n,st,tut,ons  .nd  educational  system  of  (ireat  Britain 

and  ha.s  also  kd  to  nnportant  measures  for  the  orjranizat.on  and 

(level.. pment  ,„  educational  metho.ls 

Frnn,  ,l.e  outbreak  .,f  the  war.  enlistment  of  youn^  „,en  fr„m 

tiK  >ch.,oIs  and  umvers.ties  cause.l  a  lar^e  an.I  rapi.l  fallin-^  off 

."  the,r  attendance.     ()sf.,nl  L-niversity.  which  1  ad  an  at,:. 

-- yf  ••;.  ^.'  ."  I'.Ml,  had  fallen  to  4.,  i„  ,...,:.     The  a,- 

;...ce  m  „rls   schools  was  also  affecte.l  by  wi.h.lrawals  for        ef 

.111.1  other  auxiharv  work. 


^  I'artiamcntarx  Papers.  Cd   812J 
L.  .S.  Commerce  Rcforls.  No.  54.  .M.irr 


'  Ibid. 
'  Ibid. 


h  6.  1918. 


OTHER    DEPARTMENTS 


24;} 


To  meet  the  conditi.  ns  caused  h>  the  lartje  falling  off  in 
attendance  at  the  iiniverjities  and  collese;.  a  Univer-itv  and  Col- 
leges ( I'.niergency  Powerr-i  Act  was  parsed  on  March  H;.  I'.t].".. 
This  extended  the  purpoies  !■  r  \\ hich  money  might  be  Ixjrrowed 
or  applied  to  include  the  makiri!.'  -j.  d  .  i  deficiencies  in  revenue^ 
and  also  proviiled  f-  r  cxu-nding  the  f.eri.  .d  f.  r  the  repayment 
or  replacement  >■:  ni-;itry  !►  rr^  \v<rd  ■  r  applied.  Thi?  act  alv. 
contained  s])ecial  pr-vi^  ,;-,s  au:h.  sizing  the  Univer^iiv  ■■f 
Oxford  and  Cambridge  ajid  ihe  c^  liege-  thereir  t.  make  emer- 
gency statutes  1).  >tp'n:n-  t]cct:-rs  :  felL  .v, -hip^  -ch' !ar-hip- 
and  professur>hii)>.  and  jiaMTie!;:-  in  relati'.n  t'    -uch  matter-.  • 

Cond'tions  in  the  elementary  -ch...  ;-  were  a's  .  affected.  The 
Iward  of  education.  b_\  a  circular  :  March  i.'.  l'.'].'..  auth- r:zed 
local  authorities  V^  -u>pend  the  en:  rcement  .f  c'mpul.v.rv  at- 
tendance by-laws.  Man}  ■  f  the  lar^-e  :  \\n-  •  -uch  l-  liirm-ng- 
ham,  Bradford  and  Hull  •  .lechncd  t^  chancre  the:r  j.  ■hex  .  b-.n 
in  many  other  places  the  rclca-e  •  ;  children  f  r  w  tk  :r.  a^iri- 
culture  and  (.ther  empl..ymer!t  .'.a-  '.-nC' •ura<:ed.  I:  wa-  e-t;- 
mated  that  .".oii.ono  children  r.n  ier  : -.  we'e  empl  ,ed  !>e;''  -e  'he 
war.  Six  hundred  thou-and  a.id:r.-.T,al  were  e-!:niated  t  have 
withdrawn  during  the  hr-t  three  }e:.r-     ;  the  w.ar  - 

The  ojieraticu  nf  the  >ch'>  l-  ^\a-  als     affec'.ei  "  v   the  u-e  ff 
school  buildmy-  f...r  nnr.:ar\   an'l     :r.er  j     errmtr::;l  ^ 
.■\t  the  end  nf  Ma>.  li'l''.,  -me  -"■'  1  u:M:r,;;-  were  err; 
this    way    in    ditYerer;    ;.a"t-      :'    :he    c  ur.tr-       T:.:-    1 
reduction   of   the    >ch' ■■  1   h  ur-    :    -    ■  •  ur.jer    cr;:Mrcr. 
cases.  ' 

Di-turbed  c^nditi.r-  .iv.e  !     :he  ■•  ar  al-     '    ' 
unrest  and  an  increa-e  •  i  ■r.\er;le  'k:  r-'jenc. 
lack  <if  itarcntal  aivi  ■  ther  c-  -.tr  1.  a-  r.v.r::     i 
the  combatant  !■  Tce-       b.ff  ^:- ;    niet:  ;: 
taken  b\'  the  <rg.-inizatii  n  ■  i  '■>  -■  -c  ■.;:-  ;. 
liiime  ( Ittice  e-tabli-he.l  a  .':r.  e-  ■•.  ■  "r^ 
consitler ;  (  1  )  what  stei-  car:  ''e  tai.e:.  ■ 


ed  :n 
1-'  a 
-  .ime 


•:e 

ht- 


■        C-  •T:-)  . 

■  i  :he  rrien  \^  en!  :r;! 
c  T:   :ti  '  ".  e't  i:n  jt"- 

i':r'-   ■  r^calf-      Ihe 
rati  r-  V    irr:r:;::ee  • 
attract  b  n  s  uw:  rtrl- 


.=  <;i'<)    \'.  rh    JJ 
/  /(.■  7  tin,  X  Ihst    r; 
ihij  .  ;.   JHO. 


i  the 


244 


BRITISH    WAR    ADMINISTRATION 


't- 
4 


to  become  members  of  brigades  and  clubs;  (2)  the  possibility  of 
transferring  a  boy  or  girl  from  one  organization  to  another  vvhen 
this  seems  desirable:  (;J)  the  steps  to  be  taken  to  prevent  over- 
lapping of  work:  (4)  the  strengthening  of  weaker  units:  (5) 
the  difticulty  of  obtaining  officers:  (0)  difficulties  in  securing  the 
use  of  school  premises  as  clubrooms  or  play  centers,  and  other 
matters  relating  to  the  effectiveness  of  brigades  and  clubs. ' 

In  the  spring  of  1!»1(!  several  measures  were  taken  towards 
planning  for  the  future  in  educational  matters.  Reference  has 
already  Ijeen  made  (Chapter  IX)  to  the  formation  of  the  Privy 
Council  Committee  for  Scientific  and  Industrial  Research,  which 
was  organized  early  in  1!>1().  In  April  of  this  year,  there  was 
also  established  a  Royal  Commission  on  University  Education 
in  Wales  to  inquire  into  the  organization  and  work  of  the  Uni- 
versity of  Wales  and  its  three  constituent  colleges,  and  into  the 
relations  of  the  University  to  those  colleges  and  to  other  institu- 
tions in  Wales  providing  education  of  a  post-secondary  nature, 
and  to  consider  in  what  respects  the  present  organization  of  uni- 
versity education  in  Wales  can  be  improved  and  what  changes, 
if  any.  are  desirable  in  the  constitution,  functions,  and  powers  of 
the  University  and  its  three  colleges.  This  commission  consisted 
of  nine  meml)ers.  with  Viscount  Haklane  as  chairman.  - 

In  the  same  month  the  Board  of  Education  for  England  and 
Wales  e.tablished  a  departmental  committee  on  Juvenile  luluca- 
tion  in  Relation  to  Employment  after  the  War.  to  consider  what 
steps  should  be  taken  to  make  provision  for  the  cducaticjn  and 
instruction  of  children  and  young  persons  after  the  war,  regard 
being  had  particularly  to  the  interests  of  those  {  1  )  who  have  been 
abnormally  employed  during  the  war;  (2)  who  can  not  immedi- 
ately find  advantageous  employment;  or  ( '! )  who  require  .special 
training  for  employment.  This  committee  con.sisted  of  sixteen 
members,  two  ot  whom  were  women,  with  J.  Herbert  Lewis, 
M.P..  as  chairman.  ■' 

An  interim  report  was  submitted  by  this  committee  on  August 

'  I.ibnnI  Vrar  Book.  1917,  p.  152. 
'  Ihid..  p.  14.?. 
•  Ibid.,  p.  1S2. 


i 


u 


■<p 


OTHER    DEPARTMENTS 


245 


24,  1916,  and  a  final  report  in  1917.  The  committee  had  met  on 
35  days  and  examined  97  witnesses.  It  recommended  a  uniform 
elementary  school  leaving  age  of  14,  and  the  establishment  of 
continuation  classes  for  children  between  14  and  IS,  obligatory 
for  those  not  receiving  other  instruction  for  not  less  than  s  hours 
a  week  for  40  weeks  a  year.  * 

In  August,  1916,  two  other  committees  were  appointed,  one 
on  the  Teaching  of  Modern  Languages  and  one  on  the  Teaching 
of  Natural  Science,  to  inquire  into  the  position  occupied  by  these 
subjects  in  the  educational  systems  of  (ireat  Britain,  especially 
in  the  secondary  schools  and  universities,  and  to  advise  what 
mea.sures  are  needed  to  promote  their  study.  The  committee  on 
modern  languages  was  to  take  into  consideration  the  reepiire- 
ments  of  a  lilieral  education,  including  an  appreciatioti  <jf  the 
history,  literature,  and  civilization  of  other  countries  and  the  in- 
terest of  commerce  and  puiilic  service.  The  committee  on  the 
teaching  of  science  was  to  have  regard  to  the  reciuirements  of  a 
liberal  education,  to  the  advancement  of  pure  science,  and  to  the 
interests  of  the  trades,  industries,  and  professions  which  particu- 
larly depend  upon  applied  science. " 

Two  committees  have  also  been  appointed  by  the  Board  of 
Education  on  Principles  of  .Arrangements  Determining  Salaries 
of  Teachers — one  committee  considering  this  <iuestion  with  refer- 
ence to  teachers  in  elementary  schools  and  the  other  with  refer- 
ence to  teachers  in  stv  ndary  and  technical  schools  and  other 
institutions  for  higher  education  (other  than  university  institu- 
tions). Tl.ese  committees  were  to  inquire  into  the  principles 
which  should  determine  the  fixing  of  salaries,  due  regard  being 
had  to  such  differentiation  in  respect  to  locality,  duties,  ([ualifi- 
cations,  sex,  and  other  relevant  considerations  as  is  consistent 
with  or  necessary  to  the  organization  of  the  teaching  service 
thr(night)ut  the  country  on  a  system  conducive  to  the  etticiency 
of  national  education.  ' 

In  the  summer  of  HMO  it  was  announcetl  that  the  Reconstruc- 

'  I'arliamcntary  Papers.  1916.  fd.  8J74 ;  191",  t'cl   .h.MJ.  ,S577. 

'  /  i7vr,i/  Year  Hook.  1917.  p   159. 

°  L'.  S.  C'<)»iw.-'a-  h'tforts.  Mardi  6.  191S.  N.i,  5-t. 


24C 


BRITISH    WAR    ADMINISTRATION 


J^. 


tion   Committee  should   supervise  and   review  changes   in   the 
educational  system. ' 

After  the  organization  of  the  Ministry  of  Reconstruction  in 
1.>U  an  Adult  Education  Committee  was  established  to  consider 
the  provision  for  and  possibilities  of  adult  education  (other  than 
technical  or  vocational)  in  Great  Britain,  and  to  make  recom- 
mendations. " 

At  the  beginning  of  the  war  Mr.  Joseph  A.  Pease  occupied  the 
position  of  President  of  the  Board  of  Education  for  England  and 
\\  ales.  On  the  formation  of  the  Coalition  Cabinet  in  June  1915 
this  place  was  assigned  to  Arthur  Henderson,  one  of  the  Labor 
members  of  Parliament.  In  August.  1010,  Marquess  of  Crewe 
became  President  of  the  Board  of  Education. 

On  the  organization  of  the  Llovd  George  Ministrv  in  De- 
cember. 1910.  the  presidency  of  the  Board  of  Education   for 
England  and  Wales  was  assigned  to  Mr.  H.  A   L   Fisher   Vice 
Chancellor  of  the  University  of  Sheffield.     This  appointment  was 
of  especial  significance,  in  assigning  this  post  to  a  professional 
teacher  of  high  standing,  whereas  hitherto  this  place  had  gen- 
erally been  given  to  a  leader  in  political  life.      Mr    Fisher's 
appomtment  indicated  that  the  new  government  expected  to  give 
a  good  deal  of  attention  to  educational  problems:  and  in   \ugust 
1017.  an  Education  Bill  was  introduceil  for  carrying  into  effect 
the  recommendations  of  the  Committee  on  Juvenile  Education 
for  the  establishment  of  continuation  schools  for  children  be- 
txyeen  14  and  18.     There  was  general  agreement  in  favor  of  the 
educational  principles  of  the  bill,  but  on  account  of  criticism  of 
some  administrative  features  the  bill  was  withdrawn  in  Decem- 
ber.    In  l!)Ks  another  Education  Bill  ^^■a,  introduced,  based  on 
the  same  mam  principles  requiring  children  up  to  the  age  <,t  1 1 
t<.  give  full  time  to  school  education  and  compulsnrv  part  time 
education  for  children  between  14  and  is.  '    Wi,h  some  amend- 
ments this  bill  l)ecame  law. 

'  T-KV^"  History  of  tin-  War.  xiv,  ch   215.  p  284 
.  L,  >-^omnwrcc  Reports.  .March  6.  1918.  .\n  54, 
ihc  limes  History  of  the  War,  xiv,  cli.  215.  pp  284-288 


OTHER    DEPARTMENTS 


247 


Scottish  Committees 

\^st  of  the  new  government  departments,  commissions  and 
committees  established  tor  war  purposes  have  had  jurisdiction 
over  the  United  Kingdom;  but  in  addition  to  local  committees 
formed  throughout  the  kingdom  for  various  purposes,  there  have 
also  i)een  a  number  of  central  committees  appointed  for  Scotland, 
in  connection  with  the  Scottish  administrative  departments. 
These  have  l)een  noted  in  connection  with  the  several  topics:  but 
it  may  be  of  service  to  bring  together  a  list  of  the  more  im- 
portant Scottish  committees,  as  follows : 

Scottish  Advisory  Committee  on  Aliens.  Mav  l>1».  1!)15. 

Committee  on  Distributing  Trades  in  Scotland.  June  4,  1915, 
to  consider  the  readjustment  of  the  distributing  trades  in  Scot- 
land, so  as  to  release  a  larger  number  of  men  for  enlistment  or 
the  national  service. 

Scottish  l'"ood  Production  Committee.  June.  l!ll.">. 

Scottish  Committee  on  Substitutionary  Labor  during  the  War 
(Clerical  and  Commercial),  November  1,  I'M'j,  to  advise  as  to 
the  employment  of  women  or  otherwise  to  replace  men  with- 
drawn for  service  in  the  forces. 

War  Savings  (Scotland)  Committee.  May,  lltlC. 

In  other  cases  district  agencies  or  subcommittees  were  estab- 
lished for  Scotland.  ' 


Irish  Committees 

A  similar  list  of  committees  for  Ireland  shows  some  cor- 
responding t(j  those  for  Scotland  and  some  for  distinctively  Irish 
problems,  while  no  committees  appear  for  Ireland  for  some  pnr- 
lioses  where  committees  were  api)ointed  for  the  other  parts  of 
the  L'nitfd  Kingdom.  The  following  is  a  partial  list  of  Irish 
committees : 

Belgian  Refugees  (Ireland)  tonimittec.  October.  Iltl4.  the 
tirst  general  committee  on  relief  lor  the  Belgians. 

'  Ubcral  y,ar  Pook.  1917.  pp.  152,  154.  159,  loO.  163. 


248 


BRITISH    WAR    ADMI.NMSTRATION 


Women's  Employment  ( Ul.^ter)  Central  Committee.  October 
1914. 

Women's  Em[  oyment  Irish  Central  Committee.  Xovenber 
1914. 

Irish  Food  Production  Committee,  June.  l!»],"). 

War  Savings  (Irish)  Committee,  July.  191"..  ' 

In  connection  with  the  Easter  Reix-Ilion  in  the  spring  of  1916, 
committees  were  appointed  on  Victims  of  the  Rebelli.  '  and  oii 
Projerty  Losses  in  Ireland.  A  Royal  Commission,  created  in 
August,  1910.  to  inquire  into  the  shooting  of  Sir  Francis  Skef- 
fington  and  others,  reported  that  there  was  no  justification  for 
the  shooting  of  these  men.  which  had  been  done  by  order  of 
Captain  Bowen  Colthurst  who  was  found  by  .->  court-martial  to 
have  been  insane  at  the  time. " 


I, 


Labor  Problem.^ 

A  number  of  committees  and  other  agencies  established  to  deal 
with  various  labor  problems  have  already  Ijeen  noted  in  other 
parts  of  this  report.  Thus  the  relief  agencies  organized  in  the 
early  months  of  the  war  were  active  in  finding  emplovment  for 
those  out  of  work,  notably  the  Women's  Emplovment  and  Bel- 
gian Relief  Committees.  By  the  .spring  of  l!il>,,  problems  of 
readjusting  th,?  lakir  supply  to  meet  the  dislocation  caused  by 
recruiting  for  the  arni_\  and  munitions  works,  and  of  extending 
the  iK.licy  of  substituting  women  for  men  in  many  new  employ- 
ments led  to  tlie  formation  of  new  agencies  for  these  purposes, 
such  as  the  Home  Oftice  Committees  on  Shops  and  on  Clerical 
and  Commercial  i:mployments,  and  the  Scottish  Committees  on 
the  Distributing  Trades  and  on  Suli-titutionary  Labor.  During 
the  summer  the  new  Ministry  of  Munitions  developed  an  elabo^ 
rate  .organization,  including  a  Labor  Regulation  and  a  Lalwr 
Supply  Department  and  Committees  on  Laljor  Supply  and  the 
Health  ..f  Munitions  Workers,  with  local  advisory  boards.  In 
connection  uith  the  development  of  the  munitions  industry,  many 

;  Uh,-ral  y,-iir  Book,  1917,  pp.  149,  154.  16o.  li,4 
■  Ibid.,  p    14J. 


OTHER   DEPARTMENTS 


H'J 


trade  union  restrictions  were  modified  or  suspended,  and  an  ex- 
tensive "  dilution  "  of  lalwr  was  secured  by  the  extensive  employ- 
ment of  semi-skilled  and  unskilled  lalxjr  and  women.  In  October, 
rjl"),  a  l')uildin{j  Lalxjr  Interdepartmental  Committee  was  ap- 
pointed to  control  and  regulate  the  rate  of  wages  paid  to  building 
labor  engaged  on  the  c(jnstruction  of  buildings  intended  for  the 
production  of  munitions  of  war. 

As  the  result  of  trade  conferences  called  jointly  by  the  Board 
of  Trade  and  the  Home  Office  at  the  request  of  the  Army  Council 
agreements  were  also  reached  in  other  than  engineering  trader 
for  the  substitution  of  women.  In  1!'1,"»  agreements  were  made 
for  textile,  leather,  printing,  baking,  woodworking,  earthenware 
and  china  industries;  and  in  I'.tlti  similar  agreements  were  con- 
cluded in  lace  making,  silver  plate,  cutlery,  brush  making  and 
other  industries. ' 

In  November.  l!tl.">,  an  interdepartmental  committee  of  the 
Home  Office  and  Board  of  Tratle  was  appointed  "'  to  consider 
the  question  of  utilizing  to  the  full  the  reserve  of  women's 
lalK)r."' 

In  March,  1!>1C..  a  Women's  War  Employment  (Industrial) 
.Advisory  Committee  was  formed  to  advise  the  Board  of  Trade 
and  the  Home  Office  (jn  <|uestions  arising  out  of  measures  taken 
by  the  departments  to  give  practical  effect  to  the  policv  of  the 
government  of  extending  the  employment  of  women  in  industrial 
occppations.  and  to  watch  and  report  on  the  progress  made.  ■ 

.\fter  the  passage  of  the  cominilsory  Military  Service  Act  a 
Home  Office  committt-e  on  the  employment  of  conscientious 
objectors  was  appointed. 

In  connection  with  the  work  of  the  various  committees  active 
])ropaganda  was  carried  on  by  means  of  publications  issued  In- 
various  governnKMit  departments.  In  I'ehruary,  I'.tlt'i,  the  -Min- 
istry of  .Munitions  published  a  large  illustrated  booklet,  "  Notes 
on  the  Employment  of  \\(nnen  in  Munitions  of  War."  V>\ 
July,  I'.ni',  the  Hoard  of  Trade  had  established  an  information 

'Andrew-  and   Hnhbs :   /ir.ii/oimV  Effects  of  the  liar  iifon   Women  and 
I  hildroi  in  dreat  Uritaiii.  )>.  5.S. 
'Liberal  )',;ir  Hook-.  1917.  p.  164. 


250 


BRITISH    WAR   ADMINISTRATION- 


i 


bureau  for  the  collection  and  circulation  of  information  on  the 
rcplaccrient  of  male  by  female  lalx^r;  ind  soon  after,  in  co- 
operatioi.  with  the  Home  Office,  iss-.  a  series  of  pamphlets 
on  the  substitution  of  women  f(ir  n  ,  m  industry.  In  Sep- 
temlHT,  li.Kl.  the  War  Oftke  put  out  a  larjje  illustrate.l  pam- 
pl.iet  listing  occupations  on  which  women  were  successfully 
employed.  ' 

In  Xovemkr,  liH.i,  a  new  Women  in  Munitions  W'oik  Com- 
n.utee  was  formed  to  consider  the  question  of  tin  supph 
vomer's    service    (whether    voluntary    or    paid)    in    cant'.-, 
hostels,  dubs  and  other  agencies  connected  with  the  welfc       .i 
muniti.Mis  workers,  and  to  advise  what  steps  should  !)e  t,  ^.       ,. 
connection  therewith.     Si.x  of  the  nine  members  of  "   -  ■..- 
mi t tee  were  women.  - 

La.Mir  problems  were  thus  being  handled  by  a  c  i.  ' 

number  of  new  committees  and  other  agencies  conn  :  ,» 
several  ditTerent  mini.sterial  departments;  wnile  the  Lab.  ,  ' '  - 
pprtnient  and  Employment  i:.<changes  connected  with  the  Boo-1 
of  Trade  continued  to  e.xercise  their  functions  in  this  field.  T:  . 
result  was  a  large  aino. -.t  of  (werlapping  and  conflicting  juris- 
dicti(,.ns;  while  no  one  Minister  was  responsible  for  the  considera- 
tion of  lalxir  problems  as  a  whole. 

When  the  I.loyd  (..-"-ge  Ministry  was  formed  in  December, 
T.nc.  not  (>nly  was  a  prominent  Lalwr  meml)er  oi  Pniliament 
made  a  member  of  the  small  War  Cabinet,  (nii  a  new  Minister  of 
Labor  was  appointed.  The  \ew  Mini-tries  .\ct.  passed  Liter  in 
the  same  month,  made  statutory  pr.,vision  for  the  new  Ministry 
..f  Labor,  and  provided  that  there  .should  be  t:  insferrt;I  lo  the 
Minister  of  Lalxir  the  powers  and  duties  of  the  Board  of  >  rade 
under  certain  acts,  an('  thit  he  should  have  "  such  other  powers 
and  duties  oi  the  Board  <^i  Trade  or  n{  anv  other  jrovernment 
<lepartment  or  authority  relating  tcj  labor  or  industry,  whether 
conferred  by  statute  or  otherwise,"  as  mav  be  transferred  by 
Order  m  Council,  or  as  he  might  be  authorized  to  perform  con- 
currently with  or  in  consultation  with  the  government  depart- 
I  .Amlrcws  and  Hobb.-.  i/.  cit..  pp.  52,  60,  61 
Liberal  i  :ar  Hook-.  1917,  p.  164, 


''*:^ii- 


Si: 

Is-,: 

H 


wi[^^MLmMmmm^M 


^ 


OTHER    DEPARTMENTS 


J51 


nient  or  authority  cuncenieil.  The  powers  of  the  BoarJ  ok 
Trade  specitically  to  lie  transferred  were  those  under  the  fol- 
lowinf;  acts:  Conciliation  Act.  l>!ii;;  Lalxir  Kxchanj;e  Act,  r,H)!t: 
Trade  iHiards  Act,  11mh>;  Xatimal  Insurance  (Unemployment) 
Acts.  Iltil  to  r.Mil.  and  I'art  !  of  the  Munitions  of  War  Act. 
llil.-).  ' 

An  Order  n\  Coinicil  of  July  -2.  I'.'IT.  transferred  to  the  Min- 
istry of  Lai)or  the  duties  performed  by  the  department  of  labor 
statistics  <if  the  I5o:ird  of  Trade.  • 

The  Kstimates  of  the  Ministry  oi  Labor  for  l'.M7-l>«  show  the 
main  divisions  of  this  Ministry  in  the  spring  of  l'."17  as  tollows: 


>'in!stry  of  Labor 

I'lnplovtrn'tit    l\'partni'nt 

Indiistrta!  Commissions  Dcpartnunt 
Trade    lizards 


t      15.606 

l,"(V«.0>r) 

11,421 

16,429 


Total :?1."...4"6 

Appr  priati'iiis  ill  .\ul   5;:"'0S0 


>.et 


utal. 


£\J3:A2b 


The  ;,rincipal  divisions  of  the  Ministry  of  Labor  at  the  end  of 
191"  were  as  follows: 

Chief  industrial  Commissioners  Department 
Lmploym.ent  1  )epartment 
Claim.-"  and  kecord  Ottice 
Department  of  Lab.  >r  Statistics 
Office  of  Trade  Hoanls 

In  connection  with  the  Labor  Ministry  .i  .series  of  ad  .isorv 
coinnnttees  have  been  a])piinted  for  ili*^erent  trader  for  the 
employment  of  disaliled  soldiers  and  sailors  as  f.illc-\v-  :  tailo'-inf;- 
ixisket,  skip  antl  hamper  trade:  elec.r:city  trade:  furr.itnre  tr:Kle: 
printing;  and  kindred  trades;  boot  and  shoe  manalacturi"g.  and 
rinematograph  trades.  * 


'  6  ami  7  Geo.  \',  cli.  68. 

'  S.    U.   ().   1917,    .\o    (KWi 

'  I'arliciinrxlarx  f'cifcrs.}'i\7.  \o  26.  vii ;  li'iiiljkcr's  .umaiij.k.\y\:<.  \t.  222. 

'  I'arliaiiiiiiliir'y  I'apcrs.  1917,  Cd.  87-tl 


li 


BRITISH    WAR    ADMINISTn  \  ^lON 

The  establishment  of  the  Ministry  of  La!  ir  did  not,  however, 
bring  under  its  control  all  of  the  governmental  agencies  dealing 
with  labor  problems.  Several  government  departments  retained 
overlapping  and  conflicting  jurisdiction  over  some  part  of  the 
labor  world.  '  This  was  most  striking  in  the  case  of  the  Ministry 
of  Munitions,  which  continued  its  large  powers  of  regulation  and 
control  over  labor  matters  in  the  munitions  industries.  But  the 
still  newer  Ministry  of  National  Service,  established  in  1917. 
also  had  powers  of  some  importance  affecting  lalwr. 

In  the  Second  Report  of  the  Committee  f)n  National  E.xpendi- 
tures.  made  in  December.  1!)17.  some  criticism  was  made  on 
financial  arrangements  in  the  Ministry  of  Labor.  Some  salaries 
seemed  excessive:  the  various  branches  of  the  Ministry  were 
housed  in  a  numl^er  of  small  rooms  where  proper  supervision  was 
impossible:  and  the  reports  of  the  financial  ofl^cer  should  be 
made  to  the  Permanent  Secretary  and  not  to  the  heads  of 
sections.  '"' 

An  Industrial  Unrest  Commission  appointed  on  June  12.  lOlT, 
submitted  a  series  of  reports  within  five  weeks.  Another  series 
of  new  labor  agencies  were  the  agricultural  wa^es  Iwards  pro- 
vided for  in  the  Corn  I'roducti(,n  Act  of  l!tl7.  Bv  the  end  of 
the  year  the  central  boards  f,)r  Kngland  and  Wales  and  fur  In- 
land had  been  cotistituted.  In  Scotland  district  committees  were 
first  organized.  ' 


t>  t- 


Mi.MSTRV  oi-  Xationai.  Skrvick 

What  has  been  called  the  most  ambitious— and  for  a  time  at 
least  probably  the  least  effective— nf  the  g.-vernnient's  attempt, 
to  keep  lip  the  esseiuial  industries  oi  the  country  under  war  con- 
ditions was  the  Xational  .Service  Department.  In  .\ugusf,  irid. 
a  Man  Tower  Distribution  |{,,ard  was  formed  to  survey  the  field 
of  supply  and  t,.  advise  the  Cabinet  as  to  the  most  economical 
methud  .,f  its  employmetu.     In  the  Lloyd  Ceorge  Ministry  Mr. 

'  7 Ac  Tittiis  Hislorv  of  llu-  U\n.  \i.  p   450 

^  /'ci'7i<;iiicii/,irv  I'afcrs.  1917,  No,  1()7 

'  Thi   ll'tir  Cahiml    Kcfort  fur  the  y,ar  I'.'fi.  p.  102, 


\h 


OTHER    DEPARTMENTS 


253 


Neville  Chamberlain  was  appointed  as  r>irector  General  of  Na- 
tional Service;  and  before  the  passage  of  any  Act  of  Parliament 
providing  for  the  new  department,  it  had  taken  possession  of  the 
hotel  for  its  headquarters,  assembled  a  large  staff,  and  proceeded 
to  organize  its  work. 

On  March  l'S.  I!tl7,  an  act  for  establishing  the  Ministry  of 
National  Service  and  the  purposes  incidental  thereto  Ijecame  law. 
This  provided  for  a  Minister  of  .Vational  Service  under  the 
title  of  Director  (ieneral,  and  announced  that  the  purpf>se  of  the 
new  Ministry  was  to  make 

the  best  use  of  .ill  persons,  whether  men  or  women,  able  to  work  in  any 
industry,  occupation  or  service.  As  in  the  case  of  other  new  ministries,  the 
act  did  not  specifically  define  the  function  of  the  office,  but  provided  that 
the  Director  General  of  .National  Service  should  have  "  such  |M)wers  and 
duties  of  any  Rovernmcnt  department  or  authority,  whether  conferred  by 
statute  or  otherwise,  as  His  .Majesty  may  by  Order  in  Council  tran-fer  to 
him  or  luthori/e  him  to  exercise  or  perform  concurrently  with  or  in  con- 
sultation with  the  tfovernmeiit  department  or  authority  concerned,  and  also 
such  further  powers  as  may  be  conferred  on  him  by  regulations  under  the 
Defense  of  the  Realm  I  onsoliilati.m  .Act.  lOU." 


It  is  further  ])rovidcd  that  no  Order  in  Council  or  regulation 
should  authorize  the  coinpulsorv  employiuent  or  transfer  of  anv 
person  in  or  to  any  incUistry,  occupation  or  service,  or  should 
impose  any  penalty  for  any  breacii  of  a  voluntary  agreement 
made  l)y  any  person  with  the  Director  ( ieneral  of  .National 
Service.  ' 

The  lirst  ])lan  of  the  new  (!e|)artiiu'nt  w.t-  i..  >;ill  tor  vohiiiteers 
to  go  wherever  they  were  assigned  \-  tin-  riTcivcil  i.nlv  a  slight 
response,  conference^  \\itli  employer^  .uid  oinplove^  were  begun 
to  tind  out  wli.tl  men  varioii>  lirnis  cnulil  spare  and  tn  arrange 
for  their  traiisier  to  the  es^enti.d  w.ir  wurk  hv  the  substitution 
offices  of  tile  department  1  lie  <luphoatiou  of  till--  wurk  with 
that  of  the  etniiloyineiil  e\cliaiiges  tormerlv  connected  with  the 
Hoard  of  Tr.'ide  .uid  now  in  the  new  Muii>tr\  ..t  l.abir  nccihs 
evident,     b'tiroilmeiit  aiul  tratisier  were  to  be  pureK    voluntary. 


7  (I 


lb    (. 


254 


BRITISH    WAR    ADMINISTRATION 


J 


thoug..  there  was  some  suspicion  among  the  laljor  groups  that 
the  scheme  way  only  a  preliminary  to  industrial  conscription  ■ 

In  April  the  plan  of  the  new  departmen:  was  called  a  "  fiasco  " 
and  It  was  said  that  only  a  few  hundred  placements  had  actually 
been  made.  Later  it  was  described  as  '•  one  of  the  prize  futilities 
of  the  whole  war."  "  National  Service  .  .  .  is  dead  It 
knows  that  it  is  dead.  The  government  knows  that  it  is  dead 
And  all  other  people  know  that  its  corpse  has  become  offensive 

■  ■    .    What  .National  Service  wants  is  not  a  hotel,  I)ut  a  mor- 
tuary chamber  and  a  post-mortem."  - 

Some  more  definite  information  alxnit  the  (..-j,'anization  of  the 
work  o.  this  department  may  be  presented  from  official  sources 
In  reply  to  a  question  in  the  House  oi  Commons  on  .\pril  11»  as 
to   the   practical    results    secured    under    the    .Xational    Service 
scheme  since  March  1.  it  was  reported  that  the  numljer  ..f  per- 
sons employed  in  the  department  was  r.ll  at  hea.lquarters  and 
l-'l  m  other  parts  of  the  country:  in  addition,  :.'(;  ofHcers  ha.l 
l)een  loaned  from  other  government  departments,  and  '7;!  officers 
were  working  as  volunteers.      The  number  of  persons  voluntarily 
enrolled  for  service  had  been  increased  from  :c.',(i!i(i  to  l>,ss.00(> 
Assignments  to  emi)loyment  had  I)een  undertaKen  by  the   Min- 
istry of  Labor,  but  after  .May  1  the  National  Service  Department 
wnuld  make  allocations.     The  agricuiu,,,-.]  s-ction  of  the  depart- 
ment was  said  to  have  provided  sufficient  plowmen  to  meet  the 
nee<ls  n,^  tarmers.      Tiie  trade.  <ectio.  had  classit?e.l  tra.Ies  ,n  the 
"rder  ,.r   their  importance  and  orders  bad  been   issued   for  re- 
stricting the  u>c  Ml  lal.,,r  in  certain  trades.     Thirtv-tive  thousand 
w.„nen  bad  l,c.n   registered   in  ,1,.  «,,„,ei,\  soction   tnr  n-rvicc 
behind  the  line.  :„   |.>a„a.      Tuelve  ,h,.u.and   u,,,,,.,,   were  e„- 
mlled  under  an  appeal  i,,r  the  WnmenV  Land    \nnv 

During  the  sunmur  ,,t  P.ilT.  .Mr,  t-hanilKTlam  res.fj.ie.l  -,s 
Director  (.eneral  ,,i  Xatinnal  Service,  and  i,  w,,.  ,a,d  that  he 
d.d  sn  hecai.se  be  had  nntbing  to  do.      S,r  Anckiand  ( .edde>  w.is 

■  \i;.lrcw-   .111.1  llol.t,,.  ,,/>    ,,l  .  pp   ',1  (,: 

'  l\irlu,„f„l,n     /',;,,',■,(,  11)17.  v<,l,  I).'    IKil   ISJJ. 


tO^; 


^ 


OTHER    DEPARTMENTS 


255 


appointed  Minister  in  his  place;  and  the  functions  of  the  depart- 
ment were  extended. 

According  to  the  tirst  report  of  the  Select  Committee  on  Na- 
tional Expenditure  (October,  IMIT),  the  total  staff  of  the  Min- 
istry of  N'ationai  Service,  which  had  included  Tii:.'  persons  on 
March  :;i,  had  been  reduced  tu  l.il  In-  .\ugust  !•,  T.tlT.  The  total 
expenditure  ni  the  (le|)artment  from  Deceml)er,  r.Utl.  to  August 
>'.  litlT.  ha.i  been  tlL'-.'.ljL'u.  i:i((7.s()4  had  been  spent  on  the 
publicity  campaign.  X-  a  resuh  of  its  work,  :1.'p1.:!s:!  men  and 
41,!is4  wnmen  had  been  enr()lle<l.  a  total  of  ;!!»:!. ;}(;T.  i)i  these 
the  followmg  had  found  empl(i\ment: 


Men  as  .Vatimial  Service  volunteers 
Men  on  part  time  work 


19,051 

9,817 

rolal    men    employeil xj  7(,jj 

Women    empl'  >\  cd 14.256 

1  otal  men  ami  womin 44.0J4 

Soldiers  temporaniy  released   from  the  army   tor  special 

work,  mainly   on   the   land ' 'i8,595 

The  Select  Committee  wa>  d.dibttui  n  there  was  any  real 
control  over  the  expenditures  .t  this  department  bv  the  Treasurv. 
and  WIS  of  the  opinion  thai  llie  result-  obtained  were  not  nini- 
mensurate  with  the  prei)arations  made  and  the  beavv  preliniinar\ 
outlav  (if  inomw.  ' 

A  special  report  of  the  .select  lommittee  on  the  Militarv 
Service  (Review  o.  l-.M-qnioii^  i  Act,  made  on  August  i',  I'.HT, 
had  recoiiiinended  tiie  traiisfi  of  tJU'  recruiting  ine<bcal  boanl- 
and  o|  iiuMliial  e\:iniination>  lor  th<'  militarv  service  to  civilian 
coiitn  1.  and  lor  the  reexamination  ,>i  the  men  waitii'g  to  bt- 
called  up  tor  militar\  --ervice.  Tin-,  recommendation  wa>  car- 
ried out,  and  tiiucli  HI,  re.  bv  the  traii-ler  oi  the  whole  work  oi 
recruiliiig  for  the  tmlitarv  --ervu-e  to  the  Mmi^trv  oi  .\,iti.  m.d 
Service  in  the  latter  |);irt  oi  I'.'IT  -,i  >tep  winch  added  much  to 
the  ini|)ort;mce  of  the  work  of  this  department. 


rtV  luniit'nt^iry  l\t/^^-r.\    !'>17 
■(/    !\irliiiiii,-i!tiir\   lapcrs.  l'»18.  .\i 


185 


tf 


256 


BRITISH    WAR   ADMINISTRATION 


m  I 


In  connection  with  this  transfer  there  was  issued  on  November 
l->.  I.'l,.  a  senes  of  instructions  providing  for  the  constitution 
and  organization  of  regions,  regional  headquarters,  and  recruit- 
.n,^  areas,     (ireat  Britain  was  divided  into  ten  regions,  and  in 
each  regional  ..eadquarters  there  were  to  be  provided  a  director 
o.  recru.t.ng.  a  deputy  director  of  recruiting,  commissioner  of 
med.ca    .er^■,ce.  deputy  controller  of  registration  and  a  deputv 
controller  „t   statistics.     Each   region   was  to  be  divided   into 
recruiting  areas,  each  of  which  should  be  under  the  control  of  an 
area  commander  with  a  headquarters  staff  of  assistant  director, 
commissioners  and   controllers   of   recruiting,   medical    service' 
registration,    and    statistics,    and    an    assistant    in    charge    of 
expenditure.'  * 

M  fhe  end  of  1017.  the  main  departments  in  the  .Mini.trv  .,f 
National  Service  were  as  follows : 

I'inance  Department 
St.itistical  Department 
Tnide  K.xemptions  Department 
Labor  Supply  Department 
•Medical  Supi)lv  Department 
Recruiting  Department 
Registration  Department 

At  the  head  ni  ,he  Recruiting  Department  was  placed  a  director 
J.'cneral,  u,th  a  commis>,o,u.r  of  registration  and  a  chief  o.n- 
.n.ssio„er  o,  m.dical  serv,ce>.     The  Reserved  Occupation.  ,  „„, 

P..SC  1  o,  (.eneral  Smuts  and  several  .Ministers,   was   formed  ,n 

decide  a.  to  tlH-  direction  of  pressing  labor  needs.       .X    ,.,,„, 

nority  (  ommittce.  in  the  department  of  .Vational  Serv.cc   was 

:  set  m  mo,,„„  ,!,..  machinerv  for  carrying  out  the  ins.ruaions 

"I  the  War  I'rioriiy  (  .immittee.  - 


"  il'i'i"'  s  .i;„i.iiui,i,  i'»i8 

)  ear  I'JtT. 


i>.  2M  .    Ihc   liar  Labii.ei:   H,-f„<!  for  tin- 


V 


OTHER    DEPARTMENTS 


257 


Reconstruction  Plans 

r-'arlier  in  this  report  reference  has  lieen  made  to  a  considerable 
number  of  departmental  and  other  committees  appointed  from 
time  to  time  to  consider  and  report  on  various  problems  of  re- 
construction which  will  arise  at  the  close  of  the  war.  Among; 
these  were  the  series  of  Board  of  Trade  coinmittees  to  consider 
the  position  (jf  certain  trades  with  special  reference  to  inter- 
national rompetiti<jn,  the  Commercial  and  Industrial  Policy  Com- 
rnrttee.  i  -ore  uf  committees  established  by  the  Department  of 
Scientif-f  ^'^A  ^^dustrial  Research,  and  several  committees  on 
educati' irt«l  \tr>,\»^^\'>.  ' 

In  tln'  mxU"  [iar-  Mt  I'.Htl.  a  new  general  Committee  on  Re- 
constrnctiiiii  i\n^  .npntnted  by  Mr.  Asquith  as  Prime  Minister: 
and  a  series  ot  >ui» mnnittecs  was  formed  to  deal  with  par- 
ticular (|uesti(>ns  i;.-t)nrts  were  made  by  a  number  of  sul)com- 
mittees  on  agrutilniral  u"licy,  demobilization  of  the  army, 
acijuisition  nf  ;j(i\v<'r-  c^al  conservation,  aliens,  forestry, 
relations  betu-j'-i  nuplover  and  employed,  and  women's 
employment. 

In  March,  I'.UT.  tin-  C  .nnittu-c  on  Reconstruction  was  again 
reorganized,  witli  ilu-  I'rinie  .Minister  as  chairman  and  Mr.  E. 
S.  Miintagu  as  viir  rliairnian  aii!!  executive  head.  Fourteen 
other  members  were  apimintci!,  who  were  selected,  not  from  Min- 
isters with  heavy  \\;tr  ■luties.  Imt  'mm  representatives  of  lal)or, 
busine-^  and  tinance.  ami  social  \\<irkcrs,  including  several  mem- 
bers of  ParlianuMit.  lln-  turnier  -ubconimittecs  were  continued 
and  new  --ubconitiiiltee^  wire  appninted  on  adult  education,  civil 
war  wiirkeis,  deiiinhilizatii  n.  acquisition  of  land,  machinery  of 
government,  local  unverntiii  n!  and  a  Minislrv  of  Health.  The 
scojie  of  tile  coniiiiittic  \\,i^  .i!--^  extended  to  include  pnibleins  of 
housing.  nneinploMiieni,  p!'  -icil  ii-.nning,  juvenile  emplo_\nicnt 
and  apprenticeship,  siipjil  aw  iii:iiLrial-<  and  shipping. 

Ill  jul\-.  11M7.  an  Act  ■  \  '  .irliaii)'  lU  was  jjassed  providing  for 
a  Ministr\  ot  Recniistructioi     and  Dr.  Christopher  Addison,  foi- 

'  (  ;.  (  ii.i|.!ii-  l.\.  \ll. 


2:.8 


BRITISH    WAR   ADMINISTRATION 


merly  Minister  of  Munitions,  was  appointed  as  Minister  of  this 
department.     The  functions  of  the  Minister  were 

^^":!^i::i:;:':^:^:T:r^:^^^'  -^^  -<-  -^  o.  .he  p.ese„. 

aforesaid  .o  institute  and  conduct. .1,™'"'''°"'  ""'  ^"'  '^'  P"'P-" 
make  .uch  recotr-^endailnlt  ^nurfir'"'  """"'  "^'  "'^■"^^  '"'' 

For  these  purposes  the  Minister  was  to  have  such  powers  and 
dut,  s  of  any  government  department  as  might  1.  authorized  b 
Order  .n  Counc.       The  functions  were  to  be  mainly  advisor  • 
and  not  to  any  substantial  extent  executive 

cotlm.:^''"'"' 7  "^  l^^^""^'""^^'""  ^vas  organized  in  six  branches  • 
comm      e  and  product.on:  finance,  shipping  and  common  serv- 

n     hinerrof"      '"''"^'-'    -^--tio"  =    rural    development: 
machmerj  of  government,  health,  education,  etc.;  and  housing 
".1  .nternal  transport.     .A„  Advisory  Council  wa.s  formed   wh 
f.n.r  secttons.  three  corresponding  to  the  first  three  branches    n 

;^."::;:;:;rir""^-^-^-'-------^^ 

Adchttonal  committees  and  other  agencies  on  reco.istruction 
e  i.en  organ.zed  ,n  connection  with  this  new  ministrv  an 

h  o  er  m,n.str,es  and  departments  of  the  government.  .V 
l.-st  of  the  vanous  agenc.es  organized  to  deal  with  after  the  war 
problems,  pubbshed  early  in  ,.,s.  included  no  J  than  S7 
iHxhes.  classified  in  i:.  groups  as  follows: 

1.    Trade  Development,  indu.ling  five  committees  and  cu,„- 
ss.nns  deabng  n„l.  gnu-rai  aspects  and  nitic    k-.      , 

^        /\'tfi  specific  trades  and  industries-  ^ 

-•      •Miance.  im-Juding  two  committees- 
•■•    Kau  .M.nter.als.  including  six  co.nnfitteos: 

'■  :!,;;:!,,i:r' ""'"'"^ '^^■'' ^''"'"•••'-^ -^' '•- -''- 

■'.      Intelligence,  with  two  committees  - 

rck  n  .,..:uhng  n„n„m.ee.  >even  research  com- 
"i.ttccs.  tnnr  M„,,„n  com„m,ees,  an.i  three  provisional 
'irganization  coniniiiiees:  '     '"'""'" 


''/'.    Il.ii-  (  „/;„i.-/     A',7>„r(  f,r  the  )car  I'.ir. 


I'P  3)4-205 


hi 


OTHER    DEPARTMENTS 


250 


7. 

S. 

9. 
10. 
11. 
12. 
l'!. 
14. 
15. 


Demobilization  and  Disposal  of  Stores,  eight  committees; 

Labor  and  limployment.  two  committees: 

Agriculture  and  Forestry,  four  committees: 

Public  Administration,  six  committees: 

Housing,  four  committees; 

Education,  eight  committees  and  commissions ; 

.Miens,  two  committees: 

Legal,  three  committees:  and 

Miscellaneous,  three  committees.  ' 


Ministry  of  Rccoiistructio.i  Committees 

The  following  committees  are  directly  connected  with  the 
Ministry  of  Reconstruction: 

Committee  on  the  Chemical  Trades,  to  advise  as  to  the  pro- 
cedure which  should  l>e  adopted  for  dealing  with  the  position 
of  the  chemical  trades  after  the  war,  with  a  view  to  the  creation 
of  some  organization  which  should  he  ade(|uately  representative 
of  the  trade  as  a  whole  and  by  means  of  which  the  trade  may  Ix 
enabled  hereafter  to  continue  to  develop  its  own  resources  and 
to  enlist  the  closest  cooperation  of  all  those  engaged  in  the 
chemical  industry. 

Engineering  Trades  ( .We'd'  Industries)  Committee,  to  compile 
a  list  of  articles  suitable  for  manufacture  by  those  with  engineer- 
ing trade  experience  or  plant,  which  were  either  not  made  in  the 
United  Kingdom  before  the  war,  but  were  imported,  or  were 
made  in  the  L'nited  Kingdom  in  >tnall  or  insufticient  ([uantities. 
and  for  which  there  is  likely  to  be  a  considerable  demand  after 
the  war,  classified  as  to  whether  they  ,ire  capable  of  lx;ing  made 
by:  (  I)  women.  ( i' )  men  and  women,  or  ( ■'{ )  skilled  men;  and 
setting  out  the  industries  to  wliicli  such  new  manufactures  would 
most  suitably  be  attached:  and  tn  make  recommendations  (a)  on 
the  establishment  and  de\el(ipinent  of  such  industries  by  the  trans- 
fer ol  labor,  machines,  and  otherwise;  ib)  a>  to  how  such  a 
transfer  could  lie  nuule,  and  what  urganizaticin  would  be  re(|ui- 
site  fur  the  purpose  with  dtie  reg;ird  td  securing  the  cooperation 
of  labor. 

l-'iitaneial   TiniUties   <.'i>)iiiiiitlee    i  Treasurv   and    Ministrv    of 

'I'    S.  ( ' 'ii.'iiii-ii  I'  /u'l-frts    No   54,  March  (>,  l')18;  t'orlianHHlary  /'ii/'i'i.t. 


itk 


200 


BRITISH    WAR    ADMINISTRATION 


Reconstruction),  to  consider  and  report  whether  the  normal  ar 
rangemems  for  the  provision  of  financial  facilSes  for  trade  bv 
means  of  existing  banking  an.l  other  financial  insthu  ion  wHl  e 
adequate  to  meet  the  needs  of  British  industry  during  the  neriod 
mmediately  following  the  termination  of  the  wa  .Tnd.  ,f  nTb 
Lrd  ldn7h'"7'"'"^'T'"^^  ''''>■  ■•'^""'^'  '-  -^"PPlemeited  •' 
ie  necessar>  .  (a)  to  facditate  the  conversion  ,.f  works  and  fac'- 
ur  es  now  engaged  upon  war  work  to  normal  prod.Sion      M 

ihe^SiH^iT^Ts:' ''"'-''''  '^'  -^'-  --'"'^  -^-^■^- 

nor^unon- n'rih''''''/"   ''T"'"'  '"'''''>■■  '"  *^°"^>'J^^  -nd  re- 
port upon    (1 )  the  nature  and  amount  ..f  the  supplies  of  materials 

an<   focKJstuffs  which,  in  the  committee's  opinion  ^^ll  L   ejuirej 

b>-  the  Lmted  Kingdom  during  the  perio.I  which  wi  Idapi      ' 

tween  the  termination  of  the  war  and  the  restoration  of  a  non  lal 

cnnd.t.on  of  trade:  (.')  the  probable  requirements  orindh     he 

h;S.>s"rn'th;"M  T.'"""  -'^^  -ch' supplies  at  the  clSe'o 
instil  tics.  (.{)  the  probable  requirements  of  belligerents  and  neu- 
trals lor  such  supplies  at  the  close  of  hostilities:  (4)  the  sources 
f  om  u  Inch  and  the  conditions  under  which  such  supplies  cai  be 
IJ.  ained  and  transported,  and.  in  particular,  the  extent  to  which 
hey  might  be  obtained  from  the  United  Kingdom  or  w  hin  the 
f--|"l..re  or  from  Allied  or  neutral  countries:  ( 5 )  the  Istion 
uhether  any  measure  ..f  control  will  re.piire  to  W  exerc"'',  n 
re,.ard  to  the  nature  an.l  extent  of  anv  such  control  " 

.Jr""T"r  ""  ""'  ■>'"f'f''y  "f  ""'"'""'f  ■'^l"t''rials.    (1)   to  in- 
qu  re  jino  the  extent  of  the  probable  demand  for  buiMii  g  ma,  r  al 

'     nZ-i-';'  /'r  "^"^'  '1  ^'"^i'-''-'''^  -I'Piv  ami  form  of 
now  r   li  •  ;^  .nqu.rc  how  tar  the  (,naiui,ies  of  „,aterial 

nou  aN.ulahle  are  capable  ot  increase,  what  are  the  ditricullies  in 
ncr^asni,  them,  and  how  these  .liffic„Itie>  can  be  r';."  "  ^d 
to  report  to  uliat  extent  an  increase  in  production  uilj  affect  b 
pnce  o,  the  nia.enals:  ,:;,  i„  the  even,  !,f  ,he  supplv  !  m^ue  J.^ 
or  ,  bor  be.ng  msumcen,  „.  f„|,l,  „„.  ,,,,.,1  lH„l,li'„,,  denu  . 
coMMder  the  principles  ami  mciio.l  l,v  whid,  ,hc  pn^rnv  of  vari- 
ous claims  >hould  iK.  .enle<i.  and  to  report  wha, 's,eps  are  n  cJ - 
sa  >  ,o  insure  tha,  ,he  manniacUire  of  ,l,e  nKUerial<.  so  u  as 
^^^Z/"  '"■'"""  '"•"''^'l-"^'  ^"'-"  '-  -'-'ie.I  in  lime  ,o  s  niS 
host,li„es,  .n„l  ,„  reeonimen.l  what  steps  sbnuhl  he  taken  during 


OTHER    DEPARTMENTS 


261 


the  war  to  facilitate  a  prompt  commencement  of  building  woriv 
at  that  time;  (4)  generally,  to  consider  and  report  upon  any  con- 
ditions affecting  the  building  trades  which  tend  to  cause  unduly 
high  prices,  and  to  make  recommendations  in  regard  to  any 
measure  of  control  which  it  may  be  desirable  to  exercise 
over  the  purchase,  production,  transport,  or  distribution  of 
materials. 

Coal  Conscnation  Committee,  to  consider  and  advise:  (1) 
what  improvements  can  be  effected  in  the  present  methods  of 
mining  coal  with  a  view  to  prevent  loss  of  coal  ir.  working  and  to 
minimize  cost  of  production:  (2)  what  improvements  can  lie 
effected  in  the  present  methf)ds  of  using  coal  for  production  of 
power,  light,  and  heat,  and  of  recovering  by-products  with  a  view 
to  insure  the  greatest  possible  economy  in  production  and  the 
most  advantageous  use  of  the  coal  substance;  (;{)  whether,  with 
a  view  to  our  maintaining  our  industrial  and  commercial  position. 
it  is  desirable  tnat  any  steps  should  be  taken  in  the  near  future, 
and  if  so.  what  steps,  to  secure  the  development  of  new  coal  fields 
or  exiensions  oi  coal  fields  already  being  worked. 

Minim/,  Pouvr  Gcm'ration  and  Transmission,  Carbonisation, 
and  ecological  Subcommittees,  to  consider  the  question  of  the 
api)lication  of  carlxjnization  to  the  preparation  of  fuel  for  indus- 
trial and  commercial  purposes. 

C/r/V  ll'ar  Workers  Committee,  to  consider  and  report  upon 
the  arrangements  which  should  be  made  for  the  demobilization 
of  workers  engaged  during  the  war  in  national  factories,  con- 
trolled establishments,  and  other  plants  enj^agcd  in  the  production 
of  munitions  of  war  and  (jn  government  contracts,  or  in  plants 
where  substitute  labor  has  l)een  employed  for  the  duration  of  the 
war. 

lUsf^oSiil  of  liar  Stores  Advisory  Board,  to  expedite  the  prepa- 
ration of  any  necessary  inventcjries  of  property  and  goods  of  all 
descriptions  held  by  government  departments,  and  to  consider 
and  advise  upon  the  disposal,  or  alternative  form  of  use,  of  any 
projjcrty  or  goods  which  have  or  may  ])econie,  during  or  on  the 
termination  of  the  war,  sur])kis  to  tlie  requirements  of  anv  de- 
partnient  for  the  purposes  of  that  dep.irtment. 

Committee  on  Relations  betzceen  i'.mployers  and  l-.mployed: 
(  1  )  to  make  and  consider  suggestions  tor  securing  a  permanent 
improvement  in  the  relations  Ijctwecn  employers  and  workmen: 
C' )  to  recommend  means  tor  securing  tliat  industrial  conditions 
attectni^  tin-  relations  between  employer.-  and  workmen  shall  l)e 


262 


BRITISH    WAR    ADMINISTRATION 


systematical!)-  reviewed  by  those  concerned,  with  a  view  to  im- 
proving conditions  in  the  future 

th."Sr  f  ^'"f'^y"""'  Committee,  to  consider  and  advise  in 
he    ight  of  experience  gained  during  the  war  upon  the  oo^r- 

Z  o'leJt    '  '7'^>r'''  °'  -^-^  -^  the  conditions  oTS 

SSoTon.  J!'  'IT"'-  ^"'"'""'^i^J'  agricultural,  and  industrial 
occupations  after  the  war. 

Agricultural  Policy  Committee,  having  regard  to  the  need  of 

recuHtT';o'r"'r""  'r'  "-pp'-"  -  theimerest  'f ;:, '. 

sTch  inc'rease  '"''  ''P""  "P""  ^'^^  '"^^'^"''^  °^  ^'^-t-^' 

F«r«fry  Committee,  to  consider  and  report  upon  the  l)est 
means  of  conserving  and  developing  the  woidland'Lnd  f,  re  Trv 
resources  of  the  Lnited  Kingdom,  having  regard  to  the  expert 
ence  gained  during  the  war.  * 

''^facluncry  of  Gorermnent  Committee,  to  inquire  into  the  re- 
sponsibilities of  the  various  departments  of  the  central  execmi'^ 
government,  and  to  advise  in  what  manner  the  exercise  and  dis- 
tribution by  the  government  of  its  functions  should  l,e  improved 
Local  Gorernmeut  C  ommittce.  f.  consider  and  report  upon  the 
eps  to  be  taken  to  .ecur.  the  l>ctter  coordination  of  public  as- 
sistance ,n  England  and  Wales,  and  upon  such  othe"  matters 
affecting  the  system  ot  local  government  as  mav  from  time  to 
time  l)e  referred  to  it. 

Committee  on  the  Acquisition  of  Land  for  Public  Purposes  to 
consider  and  report  upon  the  defects  in  the  existing  system' of 
law  and  practice  involved  in  the  acquisition  and  valuation  of  land 
fnr  piiblic  purposes  and  to  recommend  any  changes  that  mav  be 
desirable  in  the  public  interest. 

Advisory  Iloustn,!  Panel.  Certain  memljers  of  the  Recon- 
struction Committee  were  mvite.I  by  the  .Minister  of  Uecon.truc- 
tion  to  o,mplete  a  general  review,  which  thev  had  u.ulertaken 
<m  liehalt  ot  the  committee  of  the  housing  question  as  it  w,nild 
present  ,tselt  .u  the  close  of  the  war.  and  to  prepare  a  memoran- 
dum  on  the  subject. 

Ailult  r.dueation  Committee,  to  consider  the  provision  for  and 
possibilities  .,t  adult  educati.m  (other  than  technical  or  voca- 
tional) 111  (,reat  I'.ntain.  an.l  to  make  rccom.ncnchtions 
-,ri"t^^  """'!'"'■'■•  J"  consider:  („)  the  que.stu.ns  which  will 
arise  at  the  end  ot  the  war  m  connection  with  ih-  presence  in 
this  coumry  ot  per.sons  of  an  enemy  nati.Mialitv.  and  whether  the 
repatriation  ot  such  is  desirable,  and  if  so,  in  what  cases-  (b) 


\l 


OTHER    DEPARTMENTS 


203 


what  restrictions,  if  any.  should  be  imposed  after  the  war  on 
admission  of  aliens  to  this  country  and  their  residence  here-  (r) 
whether  any  changes  in  the  law  or  practice  of  nationalization 
have  Ijeen  shown  by  the  experience  of  the  war  to  be  required 
m  the  public  interest. 


Demobilisation  Committees 

Committees  on  Dem(.'>ilization  and  Disposal  of  Stores,  in 
addition  to  the  Ministry  of  Reconstruction  Civil  War  Workers 
Committee  and  the  Disposal  of  War  Stores  Advisory  Doard. 
include  the  following : 

Dcmohilication  of  the  Army  Committee,  tt)  consider  and  report 
ii^n  the  arrangements  for  the  return  to  civil  employment  of 
ofticers  and  men  serving  in  the  land  forces  of  the  Crown  at  the 
end  of  the  war. 

Officers'  Resettlement  Subeommittee.  to  consider  and  report 
what  arrangements  require  to  Ije  and  can  be  made  on  demobili- 
zation for  resettlement  of  officers  in  civil  life,  and  also  of  men 
belonging  to  classes  to  which,  in  the  main,  ofticers  belong. 

Ihsabled  Ol^eers'  Employment  Committee  (  India  and  Colonial 
Offices),  to  assist  dis.iblcd  or  invalided  officers  who  mav  be  de- 
sirous of  obtaining  employment  in  India.  Hurma.  the 'Eastern 
colonies,  and  Malay  States. 

//  or  OfP.ee  Demobilizotiou  Committee,  to  consider  questions 
re(|uiring  settlement  in  c<innection  with  the  deniobilizatioii  of  the 
army  in  so  far  as  they  fall  within  the  province  of  the  War  De- 
partuKnt;  to  act  as  a  link  with  the  committee  <>f  the  Ministry 
of  Reconstruction:  and  to  prepare  a  draft  scheme  of  demobili'- 
zatiijn. 

Pemobilication  Coonlinotion  Committee  ( .\dmiralty.  War 
Office,  and  Ministry  of  Labor  )  :  (  1  )  t^  consi.ler  how  far  the  pro- 
posed special  arrangements  to  denioliilize  immediately  peace  is 
decl.ired  men  specially  recjuired  in  connection  with  the  work  of 
demobilization  can  or  should  I)e  extended  tii  other  men  belnnging 
to  the  public  services  or  to  similar  "  pivotal"  men  in  industry''; 
{•!)  to  coordinate  the  w.  rking  nf  the  demobilization  sclienio  of 
the  War  Department  with  the  resettlement  scheme  of  the  Min- 
istry of  Labor;  ( -i )  to  settle,  during  demobilization,  in.structions 
with  regard  to  priority  which  may  ap])ear  to  l>e  rendered  neces- 


k 


I 


m 

^2- 


J 


Miaiocopr  tfsoiuTiON  tht  chart 

(ANSI  and  ISO  TEST  CHART  No.  2| 


1.0 


I.I 


12.2 


^2 
136 

140 


11-25   III  1.4 


1^ 

I  1.8 
1.6 


^     APPLIED  IM/1GE    Jnc 

'655    Eas!    Mg.i    il-Mt 

Rocriester.    New    lo'ii  '  *t-C9        uSA 

("6)    4fl;  -   OMO  -   P^ione 

('16)   288  -  59B9  -  Fa» 


264 


BRITISH    WAR    ADMINISTRATION 


sary  on  public  grounds  or  by  the  sort  of  employment  in  the  dif- 
ferent industries. 

Horse  Dcmobilkatiou  Committee  (War  Office),  to  frame  pro- 
posals for  the  demobilization  of  horses  ar  d  mules  in  relation  to 
the  general  scheme  of  demobilization. 

War  Office  Emergency  Legislation  Committee,  set  up  by  the 
Army  Council  in  July  (1017)  to  consider  which  (if  any)  of  the 
emergency  acts,  and  the  regulations  made  thereunder,  i't  may  be 
necessary  or  advisable  to  continue  in  force  after  the  termination 
of  the  war  for  the  purpose  of  facilitating  the  process  of  demobili- 
zation and  reconstruction. 

Ministry  of  Munitions  Committee  on  Reconstruction  and 
Dcmobilication,  to  deal  with  all  matters  within  the  iMinistry  relat- 
ing to  reconstruction  and  demobilization. 

The  Ministry  of  Munitions  has  also  ap^.^inted  an  Imperial 
Mmeral  Resources  Bureau  Committee  and  a  Nitrogen  Products 
Committee.  The  former  of  these  is  to  prepare  a  scheme  for  the 
establishment  in  London  of  an  Imperial  Mineral  Resources 
Bureau:  (a)  to  collect  information  in  regard  to  the  mineral  re- 
sources and  metal  requirements  of  the  Empire,  and  (b)  to  advise 
what  action,  if  any.  may  appear  desirable  to  enable  such 
resources  to  be  developed  and  made  available  to  meet  require- 
ments. 

Tie  Nitrogen  Products  Committee  is  to  consider  the  relative 
advantages  of  the  various  methods  for  the  fixation  of  atmos- 
pheric nitrogen  from  the  point  of  view  of  both  war  and  peace 
purpose  ,  to  ascertain  their  relative  costs,  and  to  advise  on  pro- 
posals relevant  thereto  which  may  be  submitted  to  the  depart- 
ment; (i>)  to  examine  into  the  supply  of  the  raw  materials  re- 
quired, e.g.,  pure  nitrogen  and  hvdrog'en.  and  into  the  utilization 
of  the  by-products  obtained:  C-))  since  some  of  ihe  processes 
employed  depend  for  their  success  on  the  provision  of  large 
supplies  of  cheap  power,  to  ascertain  wh  and  how  this  can  best 
be  (jbtaired;  (4)  to  ccjnsider  what  step-  can  with  advantage  be 
taken  to  conserve  and  increase  the  national  resources  of  nitrogen- 
bearing  compounds  and  to  limit  their  wastage;  (5)  to  carry  out 
the  experimental  work  necessary  to  arrive  at  definite  conclusions 
as  to  the  practical)ility  ami  etflciencv  of  such  processes  as  mav 
appear  to  the  committee  to  be  of  value:  (d)  as  a  result  of  the 


"■■r: 


!^^., 


OTHER    DEPARTMENTS 


26i 


foregoing  steps,  to  advise  as  to  starting  operaiions  on  an  indus- 
trial scale. 


Committees  on  India 

Several  agencies  have  been  organized  to  deal  especially  with 
problems  relating  to  India.  . 

The  Industrial  Development  Commission  (Government  of 
India),  to  examine  and  report  upon  the  possibilities  of  further 
industrial  development  in  India,  and  to  submit  its  recommenda- 
tions with  special  reference  to  the  following  questions:  (a) 
whether  new  openings  for  the  profitable  emplovment  of  Indian 
capital  in  commerce  and  industry  can  be  indicated:  (b)  whether, 
and,  if  so,  in  what  manner,  the  government  can  u.sefully  give  di- 
rect encouragement  to  industrial  development— ( 1)  by  rendering 
technical  advice  more  freely  available,  ( i )  by  the  demonstration 
of  the  practical  possibility  on  a  commercial  scale  of  particular  in- 
dustries, (;})  by  affording,  directly  or  indirectlv,  financial  assist-' 
ance  to  industrial  enterprises,  or  (4)  by  anv  other  means  which 
are  not  incompatible  with  the  existing  fiscal  policy  of  the  govern- 
ment of  India. 

India  Cotton  Grounng  Committee  (Government  of  India): 
( 1 )  to  consider  the  work  that  has  already  been  done  towanl  the 
establishment  of  long-staple  cottons;  (2)'to  determine  the  meas- 
ure of  success  achieved,  or  in  the  case  of  failure  the  reasons 
therefor,  whether  these  are  due  to  agricultural  or  economic  causes 
or  to  administrative  difficulties;  (;5)  to  carry  out  a  detailed  study 
of  local  conditions  in  each  cotton-growing  tract  and  to  intjuire 
into  the  methods  cf  ginning  and  marketing;  (4)  to  consider  the 
possibility  of  developing  long-staple  cottons  in  India  if  sufficient 
funds  and  staff  are  devoted  solely  to  that  object  and  to  submit 
recommendations  as  to  the  staff  required  and  the  organization 
necessary. 

Interdepartmental  Conference  on  Missions  in  India,  to  consider 
the  conditions  on  which  aliens  should  after  the  war  be  allowed  to 
conduct  missionary  or  educational  work  in  India. 

Reference  has  been  made  to  the  joint  coniniittee  of  the  India 
and  Colonial  Offices  on  the  employment  of  disal)letl  officers. 


266 


BRITISH    WAR    ADMINISTRATION 


Local  Government  Board  Committees 

A  number  of  committees  have  been  established  by  the  Local 
Government  Board,  as  follows : 

National  Registration  Committee,  to  consider :  ( 1 )  the  question 
of  the  registration  of  the  population  for  administrative  and  other 
national  purposes,  and  (2)  what  changes,  if  anv.  are  desirable  in 
the  system  of  rej^istration  of  births,  deaths,  and  marriaees  in 
England  and  Wales. 

Committee  or  Road  Locomotives  and  Heav\  Motor  Cars  to 
consider  the  law  and  regulations  relating  to  the  construction  and 
use  of  road  locomotives  and  heavy  motor  cars  in  Great  Britain, 
and  to  report  what  amendments,  if  anv,  are  desirable. 

Local  Government  Boa.u  Conference  on  Housing,  to  consider 
(1)  methods  of  ascertaining  the  housing  needs  of  each  district: 
(i)  the  extent  to  which  local  authorities,  public  utility  societies! 
and  private  enterprise  can  be  relied  on  to  meet  needs:  (:!)  state 
"assistance;  (4)  amendments  in  law  with  a  view  to  facilitating 
building:  and  (5)  definition  of  working  classes. 

Committee  on  Building  By-Lazes,  to  consider  the  control  at 
present  exercised  in  England  and  Wales  over  the  erection  of 
buildings  and  the  construction  of  streets,  by  means  of  by-laws 
and  local  regulations,  and  their  effect  upon  building  and  develop- 
ment, and  to  make  recommendations. 

Hou.nng  ( Building  Construction)  Committee,  to  consider  ques- 
tions oi  building  construction  in  connection  with  the  provision  of 
dwellings  for  the  working  classes  in  England  and  Wales,  and 
report  upon  methods  of  securing  economy  and  dispatch  in  the 
provision  of  such  dwellings. 

A  Committee  on  ihc  Interpretation  of  the  term  "  Period  of 
the  [far"  has  been  appointed  by  the  .\ttorney  General:  ((7)  to 
inquire  into  the  lega'  questions  that  may  arise  as  to  the  determina- 
tion of  the  date  of  tl;e  termination  <jf  the  war  for  the  purpose  of 
the  various  acts,  orders,  and  regulations  the  duration  of  which 
depends  directly  or  indirectly  upon  the  date:  (  b)  to  consider  and 
advise  upon  the  meaning  of  the  form  or  forms  of  temporary  com- 
mission and  voluntary  attestation  in  use  in  his  Majesty's  forces 
since  the  beginning  of  the  war,  with  a  view  to  .ieterm'ining  the 
rights  of  officers  and  men  to  release  from  his  Majestv's  services 
at  It-  terminaiioii,  and  to  make  any  recommendations  thereuii 


f^mm^^mm 


OTHER   DEPARTMENTS 


2G7 


which  seem  desirable;  (c)  to  consider  the  effect  of  the  termina- 
tion of  the  war  upon  government  and  private  contracts,  and 
whether  any  legislative  or  other  steps  are  necessary  to  assist  in 
determining  questions  likely  to  arise  in  this  connection;  (</)  to 
consider  the  effect  upon  contracts  of  apprenticeship  and  other 
arrangements  for  learning  a  trade  or  profession  entered  into  by 
ofificers  and  men  now  serving  in  his  Majesty's  forces  of  ( 1 )  vol- 
untary acceptance  of  a  commission  or  enlistment,  (2)  compulsory 
service,  and  (3)  the  termination  of  the  war,  and  to  make  any 
recommendations  thereon  which  seem  desirable,  and  to  report 
thereon. 


i? 


A  Dentists  Act  Committee  has  been  appointed  under  the  Privy 
Council,  to  investigate  the  extent  and  gravity  of  the  evils  con- 
nected with  the  practice  of  c'entistry  and  dental  surgery  bv  per- 
son;; not  qualified  under  the  Dentists  Act,  and  to  consider  and 
report  upon  :  ( 1 )  the  causes  of  the  present  inadequate  supply  of 
qualified  dentists  and  dental  surgeons;  (2)  the  expediency  of  leg- 
islation prohibiting  in  the  United  Kingdom  the  practice  of  den- 
tistry and  dental  surgery  by  unqualified  persons;  and,  in  the 
event  of  such  legislation  being  deemed  expedient,  the  conditions 
under  which  certain  classes  of  unqualified  persons  at  present  en- 
gaged in  the  practice  of  dentistry  might  be  permitted  to  continue 
in  practice,  by  the  institution  of  a  special  roll  for  the  purpose;  (:{) 
the  practicability,  without  impairing  the  existing  guaranties  for 
the  efficient  practice  of  dentistry,  of  (a)  modifying  the  course  of 
study  and  examination  prescribed  for  dental  qualifications,  (b) 
reducing  the  time  occupied,  and  (c)  diminishing  the  cost  of  train- 
ing dental  students. 


The  work  of  the  Ministry  of  Reconstruction  necessarily  cuts 
across  the  lines  of  other  departments,  and  there  would  seem  to 
be  serious  danger  of  overlapping,  duplication  and  confiicts  of 
jurisdiction.  The  extensive  and  elaborate  list  of  committees  and 
commissions  establishetl  lx)th  within  this  Ministry  and  bv  other 
departments  indicates  an  active  eft'ort  to  face  the  problems;  but 
it  may  be  questioned  whether  the  machinery  of  organization  set 
up  is  not  tO(j  ct)mplex  and  cumbersome,  and  at  the  same  time 
whether  it  is  sufficiently  comprehensive  and  systematic  to  cover 
the  field  in  the  most  effective  manner. 


268 


BRITISH    WAR    ADMINISTRATION 


Committee  Reports 

Several  Reconstruction  Committees  have  submitted  reports  on 
matters  assigned  to  them.  ^ 

The  Coal  Conservation  Committee  presented  an  interim  report 
on  lUectric  Power  Supply  on  April  17.  11)17.  recommending  the 
formation  of  10,  main  districts  for  each  of  which  there  should 
be  o:,e  authority  for  generation  and  main  distribution  of  electric 
power  ,n  place  of  some  GOO  districts  now  in  existence.  Alterna- 
tive plans  of  public,  private  and  joint  management  were  pre- 

''"'^?L         !,'7f  '"'^'""'"^  '^^'  ^°'"^  government  assistance 
might  be  needed.  ' 

The  Committee  on  Forestry  submitted  its  final  report  in  Mav 
1J1..  recommending  a  single  Forestry  Commissioner  for  the 
Ln,ted  Kingdom,  instead  of  placing  this  work  under  the  separate 
ifelant"'     '^'P''""'"''  ^°'"  ^"^'^"^  ^"^  Wales,  Scotland  and 

The  Committee  on  Chemical  Trades  presented  a  report  on 
November  1  1917.  recommending  a  standing  committee  and  a 
departmental  organization  in  the  Ministry  of  Reconstruction  to 
deal  with  chemical  questions.,  action  to  be  taken  in  collaboration 
vvith  represematives  of  the  trade,  such  as  the  Association  of 
british  Chemical  Manufacturers.  ^ 

The  Local  Government  Committee,  appointed  in  July    1017 
submitted  a  report  on  December  1!>.  1917,  on  the  transfer  of 
the  functions  of  the  poor  law  authorities  in  England  and  Wales 
IhKs  report  recommends  the  abolition  of  the  present  poor  law 
unions  and  boards  of  guardians,  and  the  merging  of  all  the  func- 
.on.  of  poor  law  authorities  in  the  county  councils  and  countv 
lx.rough  councils,  with  modifications  for  London  and  some  ad- 
mmi.strative  counties;  existing  services  should  be  unified;  there 
should  be  local  committees  on  home  assistance  and  on  non-em- 
ployment and  training;  and  existing  officials  should  be  trans- 
i erred  and  their  rights  protected.  * 

'  ('".'■''■'"'.'^"'("•v  Paters.  1918,  Cd.  8880 

ll'iil..  (  <1,  S881. 

Il'id.,  Ctl.  HHH2 
'Ibid.,  im8,  CM   8917 


W9m^:mLmm:  w^m^i'm.M 


OTHER    DEPARTMENTS 


269 


In  the  spring  of  191 S  there  was  published  the  report  of  the 
Committee  on  Commercial  and  Industrial  Policy,  appointed  in 
1916.  This  report  has  been  described  as  essentially  a  "  Pro- 
tectionist '•  document,  supporting  (a)  the  prohibition  of  importa- 
tion of  goods  of  enemy  origin  for  at  least  twelve  months  after 
peace;  (b)  monopolization  of  Allied  products  for  the  Allies:  (r ) 
a  permanent  government  policy  of  making  the  British  Empire 
self-supporting;  (rf)  the  exclusion  of  foreign  capital,  but  the  re- 
moval of  all  restriction  on  the  use  of  British  cajiial  abroad:  (c) 
a  government  subsidy  or  tariff  protection  for  "  essential  indus- 
tries"; (/)  "every  encouragement  .  .  .  by  the  government  to 
the  formation  of  combinations  of  manufacturers  and  others," 
coupled  with  the  most  determined  resistance  to  any  government 
control  over  such  combinations  for  the  protection  either  of  the 
wage-earners  or  of  the  consumers;  (g)  stringent  tariff  protection 
agamst  dumping;  and  (//)  placing  all  such  tariff  policy  outside 
mmisterial  and  therefore  parliamentary  control. 

This  report  has  been  styled  a  "  stupid  proposal,"  based  upon 
a  series  of  reports  on  selected  industries  by  committees  of  em- 
ployers, avowedly  self-interested  capitalistic  groups,  and  never 
submitted  to  public  criticism  and  only  published  after  a  long  delay. 
The  one  Labor  representative  on  the  committee  of  22  had  to 
content  himself  with  stipulating  for  the  absolute  exclusion  from 
foreign  trade  of  any  -  sweated  goods."  One  member  of  the 
committee  protested  against  the  proposed  policy  of  removing  all 
legal  restrictions  from  combinations  of  manufacturers.  ' 

While  a  good  deal  of  valuable  preliminary  work  has  been  done 
by  these  various  agencies  there  does  not  appear  to  have  been 
worked  out  any  coherent  and  consistent  policv  of  reconstruction, 
nor  any  agreement  as  to  definite  principles  on  which  such  a 
policy  should  be  based. 

'  I  he  .Vcii,'  Ulati-smait,  xi,  85   (.May  4,  1918). 


'.^■•niavtaFi 


List 


10. 


11. 

12. 
13. 
14. 


APPENDIX 

of  Official  Commissions  and  Committees  Set  up  in  the 
United  Kingdom  to  Deal  with  Public  Questions 
Arising  out  of  the  War 

[Sec  page  295   for  reference  notes) 

Abrasives   and    PoIishinj>:   Powders   Research   Committee 
(Department  of  Scientific  and  Industrial  Research).' 
Acetylene  Committee.  ' 

Accommodation    (War    Departments,    etc.)    Committee.' 
Secretary:  Sir  A.  Durrant.  Office  of  Works.  Storey's 
Gate,  S.W.I. 
Admiralty  Hoard  of  Invention  and  Researcli.  ' 

Victory  House,  St.  James'  Square,  S.W.l. 
Admiralty  Coasting  Trade  Committee.  ■ 

Secretary:  Lt.  Col.  A.  K.  Leslie.  India  Hoii.<;e,  Kings- 
way,  W.C.2. 
Admiralty  Transport  .'Krhitration  Board  (1014). 
Adult    Education    Committee    (Ministry    of    Reconstruc- 
tion).' 
Aerial  Transport  Committee,  Civil  " 

Secretary:  Mr.  D.  O.  Malcolm.  Winchester  House,  St. 
James'  Square,  S.W.l. 
Aeronautics  Advisory  Committee.  ' 

Secretary:  Mr.  F."  J.  Selby,  National  Physical  Labora- 
tory, Teddington. 
Agriculture  and  Fisheries  Board  and  Ro\a]  Agricultural 
Society  (Joint  Committee). 
Secretary:    Mr.    R.    S.    Langford,    4   Whitehall    Place, 
S.W.l.' 
Agricultural  Consultative  Committee'  (August.  11114).'* 
Agricultural    Machinery  and    lnii)lements   Branch   of   the 

Ministry  of  Munitions  (January,  r.»17).  ■* 
Agricultural  Policy  Committee   (Ministry  of  Reconstruc- 
tion ).  ' 
Agricultural  Wages  Boards. " 
Air  Board  (litld).  ■ 

Secretary:  Sir  Paul  Harvey,  K.C.M.G.,  C.B.,  Strand 
W.C.2. 

271 


V  ■sr,im'aK^,-i 


APPENDIX 


IC 
17, 

18. 


i3 


19 


2D. 


21 


22 

2;] 

24, 
25. 


20 
27. 


28. 
29. 
30. 


31. 


33. 


34. 


Al;S""n^^^/-^°'"^^°    (Dissolved  in  1010).- 
Aircraft  Insurance  Committee  » 

S7''  ^^'-  ^-  ^^-  ^"^'^^'  33-30  King  William  St.. 
Air    Risks  insurance    Scheme    Committee"    (June    21, 

^'^lDec"£:mor^^  ^^''''''  ^'^'-^>-  ^--•«- 
Secretary:  Mr.  W.  H.  Rattenbury.  32  Old  Queen  Street. 

Aliens' Advisory  Committee  rMav  191.5)  » 

Awts:;'S,ss^""''^^--'^^— '-•- 

;^SS>be^n^:\v^tea^^^^ 

£Tretar:'"Mr^^^^"'f^■^^''^^■'■-•^>^^^^^^  ' 

S  W.l-  ■       •  ^-  ^-  -^^-  J°^^'  2"^^"  A""e's  Chambers. 

"^iTer^M'/'fp^n'''"''.^  Committee  (May  28.  101.5).  3 
«^ierk.  .Mr  J   Phillips.  Scottish  Office  Whiteha  I   S  W  i 

s^onTin'"'"'  ^"^-^^P-^-ental  Con\erSf  onMisl 
Allied  Xaval  Council  (1017)  « 
Allied  Supreme  War  Council' (1017)   « 
American^    Dollar     Securities     Committee      (December, 

Manager:  Mr.  G.  E,  Mav,  10  Old  Jewry   E  C 
Anti-a.rcraft  Equipment  Committee  ^       " ' 

Arnn'T-^nr  ^r"'"  ^'-  ^'^^-  ^^'^itehall  Place.  S.W  1 
Arnn  Canteen  Committee  (.April  n    idkh  ^.^ 

St!''s.\v.f  ^"'  "^^  "^"^-^-.  i'niP-ial  Court.  Basil 

Army  Contracts.  Advisorv  Committee  ^ 

hS'Sw!'  ''•  "-•  ^^--'-^'--.War  Office.  White- 

Armv  Supphes  Commercial  Department.  ^'  ' 
■Artihcial  Limbs  Committee   ' 

Secretary:  Mr.  A.  D.  Bailey,  Royal  Hospital.  Chelsea. 


APPENDIX 


273 


3G, 

37. 

3S. 
39. 

40. 

41. 
42. 

43. 
44. 


45. 
4(1. 
47. 

48. 
49. 

50. 

51. 

52. 


Belgian  Refugees  (January.  li)l.")).' 

Secretary:  Mr.  H.  A.  Leggett,  Winchester  House.  * 
Belgian  Repatriation  Committee.  ' 

Secretary:  Mr.  H.  A.  Leggett.  General  Buildings.  Ald- 
wych.  W.C.2. 
Belgian  Trade  Committee  (Foreign  Office  and  Board  of 

Trade). ' - 
Black  List  Committee. " 

Secretary:  Mr.  R.  A.  Higginbottom,  1  Lake  Buildings, 
St.  James'  Park.  S.W.I. 
Bleaching  Powder  Committee  (December,  1910).-* 
Chairman:  Col.   Alan   Sykes,  4   Norfolk  Street,   Man- 
chester. 
Blockade  Ministry  (February,  191<J).'' 

Foreign  Office,  S.W.I. 
Blockade  Ministry  Committee.  ' 

Secretary:    Mr.    L.    C.    Liddell,    M.V.O.,    Winchester 
House.  St.  James'  Square,  S.W.I. 
Building    By-Laws,    Committee    on    (Local    Government 

Board).' 
Building   Labor    Interdepartmental   Committee    (October 
28,  1915).* 
Secretary:  Mr.  W.  K.  .-Vikman,  CLE.,  Montagu  House 

Whitehall,  S.W.I. 
Secretary:  Miss  L.  P.  Johnston,  0  Whitehall  Gardens 

s.w.  ■■' 

Building  Materials.  Committee  on  the  Supply  of  (Ministry 

of  Reconstruction).  ' 
Buildmg  Materials  Research  Committee  (  Department  of 

Scientific  and  Industrial  Research).  ' 
Building  Trades,  Centra!  Advisory  Comniitte'^  ' 
Secretarv :  Mr.  G.  E.  Toulmin,  Queen  Am        c  h.t- 
S.W.l. 
Butter  Supplies  Advisory  Committee.  -' 
Canal  Control  Committee.  ' 

^  Secretary :  Mr.  R.  B.  Dun  woody,  7  Princes  Street 
Capital  Issues  Committee  (January,  1 '.'!.">).  '* 

Secretary:  Mr.  D.  F.  Buckley,  Treasury,  S.W.I 
Cargoes  (Delay  in  Unloading)  Committee.  •' 

Secretary:  Mr.  L.  W.  Atkin  Berry,  Post  Offici    1 
Cargoes  (Diverted)  Committee." 

Secretarv:    Mr.    H.    C.    Honev,    7   Whitehall    Ganie; 
S.W.I. 
Cargoes — Insurance.     Sec  Insurance. 


I  »ii  II 11^  III!  iiim    n  Bill  II    I  ii~i  TT  ~rr     -lairTiTiTiMrmr TBiirr"  iriTriMTM-nr- 


274 


APPENDIX 


-1 


•'•■!.    Cattle.  Britisli-Committee  on  Utilization  of  ^ 

54     rVm'Tl'Tr^  ^ ''.  ^^'^  ^^''"'  ^^  ^he  Sanctuary.  S  W  1 
M.    Central  Colliery  Recruiting  Court  (1!»1.5)    '    ^' ^- '''•'• 

Home  Office.  Whitehall.  S  W  1 
.^'5.    Chaplains  (Arniy)  Advisory  Committee  ^ 

Secretary:  Mr.  A.  C.  Beckwith.  1.5  All^ermarie  Street. 

'"■    ^'' mtee  '""""'^     '"terdepartmental    Advisory    Com- 
'^S^^.;^^.f '"'•  ^''^'^'-^-  ^^P— t.  Al„er- 
■?8     rt"-'"!    x'"''r'  Committee"  (August.  1!)14).- 

^''"m^'n'"'  '^""■lP°':^^:"'"'"i"ee.  Lord  Northcliffe.  chair- 
r-  -1  -^^^'^  Aerial  Transport. 

tbn';.  )^'^"'"''  C"'"'"'"^^-  (Ministry  of  Reconstruc- 
60.    Civilian  Internment  Camps  Committee  ^ 

*"■    "'™tri'/r,"'"?''  '^"■l'l».™'">  Committee'  ,0c- 

"'"    '^™\'",t„';i';'';,-'^"P'"i--  l™t^al  Con.mi.,ee-   (February 
«3^    Coal^  Conservation  Committee   (Ministry  of   Reconstruc- 

'*""    '"carhSlot"  *"""■"'""  Subcommittees:. 

Geological, 
Mining. 

OS     ro.I  r""'^""  <^'f"eration  and  Transmission, 
t'^.    Loal  Lxports  Committee  (April    l!)!",)  ■<■* 

Sr:  SAvT  -'•  """•  ^''  ^^"^-'  «-"^'"g^.  West- 
6!'.    Coal  Mines  ((^ontroller  of)  Advisory  Board  ^ 

-Secretary:  Mr.  A.  D.  McNair.  ,,  Richmond  Terrace. 
70.    Coal  Mines  Department   ' 

S^re^ry:    Mr.    If.    F.    Carlill.    s    Richn.ond    Terrace. 


■Vjfv 


''«SWS.L:=.,»^itt'5SE«I!: 


If 

Im 


7;i 

74 

7r., 

70. 


80. 
81. 

82. 

8.'!. 

84. 
85. 

80. 

87. 

88. 


APPENDIX  27"> 

Coal    'SVmmg    Organization    Committee ''    ( Fehruarv    •':? 
lltir)).'*  •     '  ■ 

Secretary :  Mr.  K.  (i.  Snart.  Home  Office.  Whitehall.S.W. 

Coal,  Retail   Price  of.  Committee"   ( Fei)ruary,   llM."))  ^'' 

Secretary:  H.  E.  Dale,  (J.A  Deans  Yard.  Vv'estminster. 

Coal     I  rack    Committee''    (June    l',    l!»lt!)     (Board    of 

Trade).  '■'* 
Cocaine  in  Denti.stry.  Committee  on  use  of.  ^ '' 
Cocaine  or  Opium — Permits — Committee.  ' 

Secretary:  Mr.  J.  A.  Johnston.  Home  Office.  S.W.I. 
Cold  Storage  Research  Hoard   (Department  of  Scientific 

and  Industrial  Research).  ' 
Colonial  Blue  Books,  Committee  on  (Colonial  Office).  ' 
Commercial  and  Industrial  Policy  Committee  (July,  I'.tlti) 
(The  F'rime  Minister).'"' 
Secretaries:  Mr.  Percv  .Ashlev.  Mr.  G.  C.  Upcott  Treas- 
ury, S.VV.l.  ■  ' 

Commi-ssion    Internationale    de    Ravitaillement    (August 
1014).  •' 
Secretary:  Mr.   R.   F.  H.  Duke,   India  House.   Kinrs- 
way.  \V.C.2.  ^ 

Compensation   for  War  Disturbances   Roval   Commission 

(August.  I'.tl.-)).  < 
Conciliation  and  Arbitration  Board.  ■' 

Secretary:  Mr.   E.  A.  (jowers.   New  Government  Ex- 
tension Buildings,  Great  (ieorge  Street,  S.W.I. 
Conscientious  Objectors.    Emphninent  Committee.  ' 

Secretary:  Mr.  W.  H.  Stewart".  Home  Office.  S.W.I. 
Conscientious  Objectors  (Work  of  National  Importance) 
Committee  (March  -Is,  lOKJ).' 
Secretary:  Mr.  H.  Gibbon  Pritchard,  !)  Bridge  Street 
S.W.I. 
Contraband  Committee. " 
Foreign  Office,  S.W.I. 
Controlled  Estal)lishments — Board  of  Referees  on  Profits.' 
Secretary:  Mr.  W.  !•.  Wakeford.  27  Abingdon  Street. 
S.W.I. 
Copper  Committee  (December,  lltlC.).'* 

Secretary:  Mr.  A.  M.  Stroud,  s  Northumberland  Ave- 
nue, W.C.2. 
Cornhil!  Committee. '' 

Secretary:  Mr.  A.  H.  Wvnne,  2  White  Lion  Court.  EC. 
Cotton  Control  Board  (11)17)." 


m3BBtsasB^::^^sssai0ss^i^s^&ii-^f^ir:a6iim^:i^»^mit:ssf, 


*%A«C'.. 


i't-.Tj  j 


276 

89. 
90. 


APPENDIX 


91. 
92. 

93. 


94, 

95, 

96. 
97. 

98. 


99. 

100. 
101. 


102, 
103. 

104. 
10.-). 

lOti. 


107. 


Cotton   GrowJnp-   m   ♦!,     r, 

fe,T'°'  '^'C^mr,'':?,?"  X'!--*  and 
DardlSK'c-' "'»*'•  "    '°"'*'    ^'     ■»■■') 

«.4£.r" '  "^^- ^"' °-— '. 

geJS,-ss^„f£feo.S„";r  '— ^. 

Secretary    "    ^  ,    """^^- " '" 

j,.^/-  Cvifian  IntetS  cT''^*^-^"°'"^  Office 
D'an,ond  Export  CoStie'^f-P^  Co„,„,ttee.  Xc  ,0 

g-^.''rcSr^ftir-^'>'^'--i^ci    ' 

Disposal   of   War  \  ,  ^'■'- 

S.„e,arv..A,r'aGTw,^r'"'««( Angus,  '"U,   .- 
J^im  .S,cre,r;t':T'""',"  ■  (-la„„arv.  ,.„,„   ... 

ur  i-(lucat!on,  S.W.i. 


of 


1.1.4 


';i,  ,£: 


APPENDIX 


277 


108 
109. 

110. 
111. 
112. 

ii;i. 


114 
115 

lie 


117. 

118. 

119. 
120. 
121. 

122- 


,    Education,   Position  of   Natural   Science  in   Educational 
System  of  Great  Britain  Committee  (August,  191G) 
(The  Prime  Minister).  '  ' 
Secretary:  Mr.  F.  B.  S^ead.  Board  of  Education,  S.W.I. 
Education,   Position  of  Study  of  Modern  Languages  in 
Educational    System    of    Great    Britain    Committee 
(August,  191ti)  (The  Prime  Minister).'^ 
Secretary:  Mr.  A.  E.  Twentvman.  Board  of  Education. 
S.W.I. 
Education   (  University  )   in  Wales  Royal  Commission.  '  •' 
Secretary:  Mr.  A.  H.  Kidd.  Board  of  Education,  S.W.I. 
Electrical  Research  Committee  (  Department  of  Scientific 

and  Industrial  Research).  ' 
Electrical  Trades  Committee  (April  27,  1010)   (Board  of 
Trade).  '  '* 
Secretary:    Mr.    J.    F.    Ronca,    7    Whitehall    Gardens, 
S.W.I. 
Electric  Power  Sujjply  Committee  (Board  of  Trade).  '•'' 
Secretary:    Mr.    M.   J.    Collins,    7   Whitehall   Gardens, 
S.WM. 
Emergency  Legislation  Committee  (War  Office).  ' 
Empire  Settlement  Committee.  '  ' 

Secretary:  Mr.  E.  J.  Harding.  Colonial  Office,  S.W.I. 
Employers  and    I-"mployed,   Committee   on    Relations   Ix- 

tween  (  Ministry  of  Reconstruction).' 
lunployment.    Sec  Officers,  Soldiers,  Women. 
Enemy  .Miens    (Internment  and   Repatriation)    Advisory 

Committee.  '■ 
Enemy  Debts  Committee  (Foreign  Office).  '■' 

Secretary:  Mr.  H.  Mead  Taylor,  Gwvdvr  House,  White- 
hall, s.w.  '  ■ 

Enemy  Exiwrts  Committee.  ' 

Foreign  Office,  S.W.I. 
Enemy  Supjilies  Restriction  Department.  ^ 

Secretary:  Mr.  <;.  lUackwell,  ti  Waterloo  Place,  S.W.I. 
Engineering  and  Shiplniikling  Establishments   Pnjductioii 
Committee  (  Februarv,  T.tl.">).  ' 
Secretary:  Mr.  H.  J.  Wilson,  .1  Old  Palace  Yard.  S  W.l. 
123.    Engineering  and  Steel  Trades  .After  the  War  Ccm- 
mittees  (July,  P.tltl)   (Board  .if  Trade).  '' 
Secretary:  I'.ngiiieering  Trades,  .Mr.  .\.  !•".  lisiev.        ; 
Secretary:  Iron  and  Steel  'i'rades,  Mr.  ('.  R.  Wooas.  ) 
0  Whitehall  Gardens.  S.W. 


278 


124 
325. 


APPENDIX 


32G. 

127. 

128. 

12!>. 

130. 

131. 

132. 

133. 

134. 


135. 
13(1. 
137. 

138. 
13!». 
140. 
141. 


Engineering  Industries  Committee  ^» 

tngine  Industry,  Provisional  r 

Combustion  (Departre'o^^^^^^^  '^'  ^"^^'•"al 

Research)   '       ^^^'^^'"^"1  of  Scientific  and  Industrial 

Excess  Profits  Duty  Committee  -^ 
Registrars :  Mr   D  HnH   r.       i 

Secretary :'  Mr    \V    H    pu  *^°"^'?'«^^-  ' 
^      Street!  S.W.i       "  ^^'"■^■-   ^'"P^^'a'  Court.   Basil 

Expeditionarv  Forces  Sanit^r,.  r 

Secretary:" Mr   R    t    rl    ■   ^""^'"'"ee.  ' 
ment.E.C  '  ^'""'  '■^^'''^t'-al  House,  Embank- 

Exp,os.n.,t    Goyernment    Controlled    Factories    Com- 

E^SrSmmLr  ''^■"^'-  '■'  °'^  Q-n  Street,  S.W.I 

S^xretar,:  Mr.  K.H.  Hi,,,  G.,d,r  House.  Whitehall 
Fair  Prices  Committee   ' 

Secretary:  Mr.    f.  c    Scott    io-  r- 

Inirgh,  •  ^*'°"'   ^-'  George  Street,   Edin- 

Farni  Produce  for  H    \f    p 

Secretary:  Capt.  C  B  Ro\i!^Z  {v,"'''''f  ^  Committee.  - 

^  „.  J  ■         A.  Bl„ck-.  k.cji.,;,.  ,,„,„,„^  „,__^^^ 
Financial    Faciliiies   aflci-    il„.    iv       ,. 

,.     .i..n  an,riv";:„';r"""'"   '  """'"y  <•<  '<«o"«rnc. 
Secretary:  .Mr.  (,.  McKiii.rh,    n 


APPENDIX 


279 


142 


143, 


144. 


145. 


140. 
147. 


14S. 
149. 

loO. 

151. 

152. 

15;!. 

154. 
155. 

150. 

157. 

158. 


Fish  (Cured)  Committee.  ' 

Secretary:  Mr.  K.  .-X.  C.  Cholmelev,  Grosvenor  House, 
W.l. 
Fish  Food  and  Motor  Loan  Committee.  •' 

Secretary :  Mr.  E.  H.  C.jllingwood.  4:1  Parliament  Street. 
S.W.I. 
Fish  Food  Committee.  ' 

Secretary:    Mr.    G.    K.    Hext,    4;i    Parliament    Street 
S.W.I. 
Fish,  Fresh  Water.  Committee.  ' 

Secretary:  The  Hon.  A.  S.  Xorthcote,  54  Parliament 
Street,  S.W.I. 
Fish  (Tinned)  Imports  Committee. - 
Fisheries  Sea  (  Scottish )  Committee.  ' 

Secretary:  .Mr.  W.  A.  Goodchild,  Scottish  Office,  White- 
hall. S.W.I. 
Flour  Mills  Control  C<immittee.  ' 

Secretary:  Mr.  F.  E.  Uawson,  Grosvenor  House.  W.l. 
Food  Ministry.  '' 

Secretary : 'Mr.  U.  F.  Wintour,  C.B..  C.M.G.,  Grosve- 
nor House.  W.l. 
Food  Prices  Committee  "  (June.   I'lK;).* 

Secretarv:   Mr.   E.   C.   Ramshotham,   Board  of  Trade 
S.W. 
Food  Production  .Advisory  Cnmmittcc.  ' 

Secretary:    Mr.    E.    .M.    Konstam,    72    \'ictoria    Street 
S.W.I, 
Food  Production  Committees  (June.  1!»15).  ^' 
England  and  Wales:  Secretary.  Mr.  H.  L.  French.  ' 
Scotland:  Secretary,  Mr.  W.  Barl)er,  Board  of  .\gricul- 

ture,  Edinburgh. 
Ireland  :  Chairman.  Mr.  T.  W.  Rus.sell.  * 
Food  Production  Department.  " 

Secretary:     Mr.     C.     K.     Pitt.     72     X'ictoria     Street. 

Food  Production  in  Ireland  .\dvisorv  Committee    '■ 

Secretary:  Mr.  D.  J.  .McGrath.  Department  of  Agricul- 
ture, etc..  4  Upper  Merrion  Street,  Duhlin. 
Food  fVoduction  in  Ireland  Departmental  Committee  ' 
Secretary:  Mr.  E.  .\.  .M.  M„rris,  Department  of  Agri- 
culture, etc.,  4  Cpper  .Merrion  Street.  Duhlin. 
Food   Research  Committee  (Department  of  Scientitic  and 
Industrial  Re-earcli).  ' 


J 


280 
159. 


APPENDIX 


160 
101. 

l«i>. 

i(;.'5. 

1«4. 


ItiS 

107. 
3  6S. 


100 
170. 
171. 

172. 

17;i. 

174. 
17.-.. 
170. 


"  "vS.'^T.T?'*  Re<,„W,i„„i„s Committee.  (NV 

l-orage^C„™i„ee.     ..,...>-,„  p,^„„   ^,^    ^^__,__  .^_^^ 

Foreign  C.'aim.s  Office   ' 

t,  '  ''due  uentb  ( JNovember  ."5    1i)\±\    '■* 

Foreign  Trade  Department.  ~- 

FoSs^"L^;.t:r-,i,iS;^rRr "°"-  ^»'- 

Fruits  ,I„p„„  Licenses)  cSmlne.""™"'""'"'-  ' 

n/""""  ;^'"".'"«  I"<r>i>y  Committee  " 

■    '"■TS.i„';"'B^S?.<'^---"-'>    C™c»iatio„    ».. 
/^^;&e^;^^-^-t;jj7  «<.«„,  B„iM. 

Grain  Supplies  Committee  ^^ 

Gral7s?,;,itts-,1;tSer;rul!' ■/""■"■  ■^''■'"'' ^-W'- 
S,.rrPt-.r,. .  r-     !       V.  Wales  (  imimittee.  ' 

Grave.s  Regi.stration  Directo  ate  * 

director:  Hrig.  Gen.  Fab,  „  Ware   CMC     w     . 
Hnu.e.  St.  James-  Sc,„a  e,  s\v        ^        ''  ^^'"'^^'^^^ 
iiigliKxplosives  Committee   ' 

Ho,.  siSci::::;*-- "■'"*"  "»o.s.w.,. 

tiirt).''  '    "^oarU  ot  .Xgricul- 

Secretaries:    Mr     F      i»     ci,-  ■>.       ^ 

4  Whitehall  l^anLns   S.U  r-    ^''^    ^^    ^^^    ^^  ■'-"• 


'.?^^FW'^«'l!SM^'^^^Pf;i^?^!i^i^9^i«aiB9^li^^ 


APPENDIX 


281 


I 


177 

178, 


179, 

180. 

181. 

182. 

183. 
184. 


185. 
18(5. 

187. 


1 8s. 
189. 


l!»(i. 
I'M. 


r,»2. 


19;]. 


194. 


Horse  Demobilization  Committee  (War  Office).  ' 
Horses  (Utilization  and  Feeding  of)  Committee.-' 

Secretary:   Mr.   C.    R.    Woods,    7   Whitehall   Gardens. 
S.W.I. 
Housing    (Advisory)     Panel    (Ministry    of    Reconstruc- 
tion). ' 
Housing  (Building  Construction)  Committee.'' 

Secretary:  Mr.  I-:.  Leonard.  Local  Government  Board. 
Whitehall,  S.W.I. 
Housing,  Local  Government  Board  Conference  on.  ' 
Illuminating  lingineering.    Sec  Engineering. 
Imperial  Mineral  Resources  Bureau   (Ministry  of  Muni- 
tions). '■- 
Imperial  Preference,  Ministerial  Committee  nn.  = 
Import  Restrictions  Department  (March,  191(i)." 

Secretary:    Mr.    H.    J.     Phillips,    22    Carlisle    Place. 
S.W.I. 
India,  Interdepartmental  Conference  on  Missions  in.  ' 
Indian  Cotton  Committee  (Government  of  India).  ' 
Indian  Wheat  Committee.  " 

Secretary:    Mr.    H.    D.    Vigor.    .'J    St.    lames'    Square. 
S.W.I. 
Industrial    Development    Commission     (Government    of 

India).  ' 
Industrial  (War  Inquiries)  Branch.^ 

Director:   Professor   S.   J.   Chapman,   Gwvdvr   House 
Whitehall,  S.W.I.  '    ' 

Industrial  Unrest  Commission. " 
Infnrmatioh  Department  of  Foreign  Office.  ' 

Director:     Lieut.     Col.     J.     Buchan,     Foreign     Office, 
S.W.I. 
Insurance  Intelligence  Department. 

Officer  in  Charge:  Mr.  G.  W.  Russel,  1:5  .\bchurch  Lane. 
E.C.4. 
Insurance  of  British  Ships'  Cargoes.  ' 

Secretary:   Mr.   J.   W.    Veriiier,    ;5:!-;5(>    King   William 
Street.    Ii.C.4.      Cf.    War    Risks    Insurance    Office. 
No.  ;jso. 
Insurance  ( War  Risks )  Office.    Sec  War. 
Internal  Combustion  luigine  Industry.    Sec  Engine. 
Interpretation  of  the  Tenn  "  Period  of  the  War."     Sec 

Period. 
Irish  Peat  Inquiry  Committee   (  Department  of  Scientific 
and  Industrial  Research).  ' 


.ffet'ftr"=^a' 


iid,--,r:i^,     r^i-i 


282 
195. 


APPENDIX 


it 


196 

197. 
198. 

199. 
200. 

201. 
202. 

203. 

204. 
20,'i. 
2()(;, 
207. 

208. 


Dublii        '■  "■  ^-  '-°™'  »  Si.  Stephen's  Crem 

juvenile  Organizations  Committee  '■■- 

K|S'?aS)li„Sr."»-oa,..s.vv.,. 

'■"'m.mJlToi-,':?""™"'''    (^-.ionaI   SerWce  Depar,. 

Secretary:  Mr.  J.  B    William.    Sf    ir      • 
ster.  S.W.I.  ^^""ams.  St.  Ermina,  Westmin- 

Labor  ^Ministry  (End  of  WU)  - 

mSlf  £  S^  /•  ^'^-^'^^"-  C.B..  Montagu  House. 
Sailorsl"^'^'    "^^""""^^^     ^^-^'e^    Soldiers    and 

''l?;eTar?'\t"'r"rr"'/-^^' 

Chambers;  WC'  "'^'    °'^    Sergeants'    I„„ 

Basket,  Skip  and  Hamper  Trade 

''l^'i\^''-  ^-  ^    ^^^>-.  Queen  Anne's  Cham- 

bers.  S.W     •      ■  ^-  ^"'^>"^'  Queen  Anne's  Cham- 
Furniture  Trade 

Queen  Anne's  Chambers.  S  W 
I  rmt.ng  and  Kindred  Trades 

Queen  Anne's  Chambers,  s\v 

BcK.  and  Shoe  .Manufacture  Trade 
Queen  Anne's  Chambers,  S  W 

Cinematograph  Trade 

Labn?"f  ?  '.^•""'■'^  Chambers.  S.W 

^abor.  Substitutionary  (ScotlanrlVr         •        , 

')er  1.  liM,-,)..'     -    ^^^°f'3'«l)  Committee"  (Novem- 

Secretarv:  Air    P    p    r  .>•    i    ^^ 
S.W.  -         '•  ^-  ^^'  ^^'^^-  Scottish  Office.  Whitehall. 


^^■;:^7^i£^? 


W'^^mmm^mm^m.'ms^^i 


APPENDIX 


283 


209. 

210. 
211. 

212. 
213. 

214. 
215. 
21G. 

217. 

218. 

219. 
220. 
221. 


Land   (Employment  on)    for  Sailors  and  Soldiers  Com- 
mittee" (July,  i:»l."))  *  (Two  reports  presented). 
Secretary:  Mr.  H.  L.  French,  Board  of  Agriculture,  etc.. 
S.W. 
Land  fnr  Public  Purposes.  Committee  on  the  Acquisition 

of  (Ministry  of  Reconstruction).' 
Land  Settlement  after  the  War  Committee  (Board  of  Ag- 
riculture). '•'■ 
Secretary:    Mr.    D.    C.    Barnard.    4    Whitehall    Place, 
S.W.l'. 
Leather  Supplies  Central  .-Vdvisory  Committee.  ' 

Secretary:  Mr.  T.  J.  Marquis,  Imperial  House,  Tothill 
Street,  S.W.l. 
Licensed  Trade  Claims   (Defense  of  the   Realm)    Royal 
Commission    (.August   2,    r,tl.">,   and    Septeml)er    i;5, 
lOlC,).-'* 
Secretary:  Mr.  D.  duB.  Davidson,  Spencer  House,  St. 
James'  Street,  S.W.l. 
Licensing  Committee  (  Exports  and  Imports).  ^ 

Secretary:  Sir  X.  Highmore,  K.C.B.,  4  Central  Build- 
ings, Storev's  Gate,  S.W.l. 
Cf.  War  Tr^de  Department.  Xo.  390. 
Liquor  Trade    ( I'inancial   Aspects  ff  Control  and   Pur- 
chase). ' 
Secretary:  Mr.  ].  S.  Eagles.  Latvnier  House,  134  Pic- 
cadilly, \\A.  ' 
Liquor  Traffic  Central  Control  Bcjard  (May.  191,5).  ^■* 
Secretary:  Mr.  J.  C.  Sykes,  C.B.,  Latvnier  House.  134 
Piccadilly,    W.l.      First    report    October    12.    191.".; 
second.  May  ;il.  I'.tKl. 
Local  Government  Committee    ( Ministry  of   Reconstruc- 
tion).' 
Losses  (Defense  of  the  Realm)  Royal  Commission  (  March 
31,  191."),  anil  !>eptember  11!,  lulti.    First  report  Sep- 
tember lit.  IKIC).  ' 
Secretary:  Mr.  D.  duB.  Davidson,  Spencer  House,  St. 
James'  Street,  S.W.l. 
Lubricants  and  Lubrication  Inquiry  Committee   (Depart- 
ment of  Scientific  and  Industrial  Research).  ' 
Lubricants.  Chemistry  of.  Subcommittee  (Department  of 

Scientific  and  Industrial  Research).  ' 
Lubricating  Oil  Advisory  Committee.  ' 

Secretary :  Mr.  W.  G.  Thomas,  >  Xorthuml>erland  Ave- 
nue, W.C.2. 


.^Z 


284 


ooo 


APPENDIX 


223 

224, 

225. 
220. 

22  r. 

220. 
230. 

231. 


232 
233 


234, 

235. 
230. 
^^37. 

238. 

239. 
240. 
241. 


•    '^lachine  Tool  Committee  ' 

construction)  »  u^imistrj  of  Re- 

Meat.  ' 

Medicarwl'r%^"'''''^'P^"'^^"^^'  Committee.  - 

Se„«a,>.:  Mr.  c.  F.  liick.rdike,  47  Victoria  S.ree,. 

Mesopotamia  Commission  '^ ^ 

S.VV  i^-eidrng.  Mm.stry  of  Munitions. 

'''^'Trad^')"^"°"^^     ^'•^^^    ^"-""ttee     (Board    of 
Secretary:    Mr.    J.    F.    Ronca.    7    Whitehall    Gardens. 
Metallurgy.  Standing  CommitteP  nn  <  n«.      . 

entific  and  IndifstriariTSarch    'P'^'''""'^'  "'  ''^-■- 

?ete?a"rt'M  "i''^^r"'">•  Committee.  ' 
>ecretar\  .  Mr.  J.  L.  Hunter.  Whitehall  Plare   '^  w  i 

wa>    \V.C.2.-  '■^-  ^-  '^°^'^'--   ^"^P^"''^'  «--.  Kings- 

Miik^i?,'''-,"'''  L'=i'^''i^''^s  Committee.  xXo.  349 
Milk-  Di.stnhut.on  Committee  (April    1'.17    * 
Secretary:    A,r.    j.    Mackintok.  '  72    Victoria 

Mine  Rescue  Research  Committee   (Department 
en  ihcand  Industrial  Research).  -^' 
Mmeral  Resources  Advisory  Committee   ' 

wtT'^u-"-  ^^'-  ^-  '^^>"'"'-'  Whitehall  P!a.e   S  W 
Mmeral  Resources  Bureau  Committee  -• 


Street, 
of  Sci- 


■"i^rMMM^Mk^^^^TJ^ 


APPENDIX 


242. 

243. 

244. 

245. 
24C. 

247. 

24S. 
24St. 

250. 

251. 

252. 

253. 

254. 

255. 

250. 
257. 

258. 


Mining,  Standing  Committee  on    (Department  of  Scien- 
tific and  Industrial  Research).  ' 
Ministry  of  Munitions  Committee  on  E.xpendiiure   ( No- 
vember, ]!>15?).  ' 
Armament  Buildings,  Whitehall.  S.W. 
Ministry  of  Munitions  Committee  on  Reconstruction  and 

Demobilization.  ' 
Motor  Drivers  Physically  Disabled  Licensing  Committee.''  '^ 
Munitions  Advisory  Committee  (Ministry  of  Munitions).  * 

Secretary :  Mr.  W.  Sutherland. 
Munitions  Boards  of  Management  Executive  Committee.  ' 
Secretary:  The  Hon.  H.  D.  McLaren,  Whitehall  Place, 
S.W.I. 
Munitions  Council  ( 1!»17). " 
Munitions  Finance  Committee. ' 

Secretary:  Mr.  A.  Collins.  Whitehall  Place,  S.W.I. 
Munitions  I'inancial  Advisory  Committee.  ' 

Secretary:  Mr.  A.  F.  Ilsley^  Whitehall  Place,  S.W.I. 
Munitions  Hours  of  Labor  Committee. ' 

Secretarx- :   Mr.    F.    H.   Shepherd,   28   Northumberland 
Avenue,  W.C.2. 
Munitions  (Interallied  Bureau).^ 

Secretary:    Mr.    O.    C.     Allen,    2    Whitehall    Court, 
S.W.I. 
Munitions  Inventions  Panel.  ' 

Secretary:  Mr.  H.  W.  Dickinson,  Princes  Street.  West- 
minster, S.W.I. 
Munitions  Labor  Priority  Committee.  ' 

Secretary:  Mr.  E.  C..  P.  Lascelles,  <j  Whitehall  Gardens, 
S.W.I. 
Munitions    Labor    Supply    Committee     ( September    20, 
l!il5).* 
Secretary:    Mr.   G.    E.   Toulmin,   Office  of   the   Labor 
Adviser.  Great  George  Street,  S.W. 
Munitions  Ordnance  Committee  (April.  l!)l(i).^ 

Secretary:  Major  E.  Tinker,  R.A.,  Woolwich,  S.E.IS. 
Munitions    Parliamentary    I-^xecutive    Committee     (July, 
1!)15).^' 
Secretary :  Mr.  W.  Allard,  Salisbury  Hotel,  Fleet  Street, 
'     E.C.4.' 
Munitions  Priority  Advisory  Committee.  '■' 

Secretary :  Mr.  A.  Jones,  1  Caxton  Street.  Westminster, 
S.W. 


m 


286 
259. 


APPENDIX 


Health     Coni'-.ittee     (September, 


200, 

■261. 

202. 
203. 

204. 

205. 
200 


207 
208 

209. 


270. 
271. 


274. 


o- 


<  ■>. 


270. 


Munitions     Workers' 

SeSiy:  Mr.  E.  H.  Peta„,  „  s,  j,„„.  ^^^^ 
Munitions  Works  Board  -^ 

scientious  Objectors  ^   Committee.     5.v  Con- 

S.W.  •  ■  ^-  ^*^''°"-  Local  Government  Board. 

National  Service  Central  Advisory  Committee  ' 
St.  Ermms.  Westminster  S  W  1     ^°'"'"'"^^- 

National  Service  Department  '^    "  ' 
Se^etary:   Mr.   A.   Collins.   St.   Ermins.   Westminster. 

""s^Sa^^tr^^l^U^^P—-^ 

Dnhlin  ■  ^-  ^^-  ''*'""S^-  1^  St.  Stephen's  Green. 

''"coiitt^^''J'r>-    Dependents    (Medical    Treatment) 
'^^"St/'^''^"'''^"  °^  (C^--  to  Compensation).  Com- 

'""rUx"^  "■  -'■  ""-■'•  "^-P'X  Ho„«.  Kings. 
°"'"S„,',SoSJ,'.'"'"°-™'™'  '^■°™'««  <  India  and 

overseas  and  Government  Loans  Committee  ^' 

Nccretarv:  Mr   S    A    ^,-,ir,„        >^ '"nmiiree. 
Taper  Supplies  Rnv; I  r  ' -^ ^'"^>.-T^"'-"er.  Treasury,  S.W.I 

I       ^^uppiRs  Ko\al  Commission  (Fel)riiarv  i  - '  i.,i,.r-,i 

''":;ra::;s;jr"""  '•™""  «'°sdo„,  an.,  Ho„a„d. 


4>-.f5p 


APPENDIX 


28: 


27'«. 

27!». 

280. 

2.S1. 


2S2. 
2S;5. 


2*^4. 


2S5. 


2SC. 


2>ir. 

2''S. 
281». 


2ii0. 
21»1. 

202 

20^. 


Peat  Deposits  in  Ireland.  Committee  on.  ■ 
Feat  (Irish)  Inquiry  Committee.    Sec  Irish. 
Pensions  Ministry.  ' 

Secretary:  Ht.  Plon.  Sir  M.  Nathan,  G.C.M.G.,  Great 
(Jeorge  Street,  S.W.I. 
"  Period  of  the  War,"  Committee  on  the  Interpretation  of 

the  Term  '     (Attorney  (leneral) 
Permit  Office.  ' 

Chief  Permit  Officer:  Lt.  Col.  H.  S.  Walker,  2  Down- 
ing Street,  S.W.I. 
Petrol  Control  Department  (April  20,  1!»1('.).'* 

Chief   Clerk:    Mr.    H.    W.    Cole.    1!)    Berkeley   Street 
W.l. 
Petroleum  Rxenitive.  - 
Petroleum  Pool  Hoard.  ■" 

Secretary:  Mr.  C.  Il  Shepherd.  Hotel  Victoria.  North- 
umberland Avenue.  W.C.2. 
Petroleum  Regulation  of  Supplies  Committee. ' 

Secretary:  Mr.  K.  H.  Frv.  s  Northumberland  Avenue 
W.C.2. 
Pi-  ■    -eding    Industry     (Ireland)     Departmental    Com- 
ttee.  ' 
S.     etary :  Mr.  O.  W.  N.  Roulston    Depanment  of  Ag- 
riculture, etc..  4  Upper  Merrion  Hublin. 
Port  and   Transit   Executive  Commiiu  -mber  DO 
11)1,-.).-* 
Secretary:  Sir  F.  (J    Oumayne,  St.  James'  i'ark,  S.W.I. 
Ports  Congestion  Committee.     ' 
Potash  Production  Committee. " 
Poultry  Advisory  Committee.  ■' 

Secretary:    M'r.    J.    R.    Jackson,    4    Whitehall    Place. 
S.W.I. 
Press  Bureau.  ' 

Secretary:  Mr.  F.  H.  Meade,  Whitehall,  S.W.l. 
Prewar  Contracts  Committee  (Board  of  Trade).  '" 

Secretary:  Mr.  L.  F.  C.  Darbv,  7  Whitehall  Gardens, 
S.W.l. 
Prisoners  of  War   (Central)   Committee   (September  '^1 
l!)l(i).« 
Secretary:  Mr.  A.  C.  Duff,  4  Thurloe  Place,  S.W.7. 
Prisoners  of  War  Central  Committee  of  the  British  Red 
Cross  and  Order  of  St.  John  of  Jeru.salem.  ' 
Secretary:  Lt.  Col.  L.  Impev,  C.I.E..  4  Thurloe  Place 
S.W.7. 


wm^w^m^ 


1 


288 
294. 


APPENDIX 


i 


•295 
296. 

297. 

298. 
299. 
300. 
401 

302. 
303. 
304. 

30.5. 

300. 

307. 

308. 


Priscaers  of  War  Department.  ^ 

^^S^-    "•   ^-    ^'--'"^-    M.V.O..    Downing 
''''TuSjljyr.^'?^^:'"-    ^--«ee    (Reconsti- 
Secretary:.Mr.V;.D.Rosewa,.VVar  Office.  Whitehall 

Secretary:  Mrs.  LfvSne   C^ffi'^'^'^tr  '"•  ''*'')•  '* 
Gate.  S.W  1         """^'^""e-  O^ce  of  Works.  Storey's 

^'tZ?  °^  ^y,"  "^'P  Committee. » 

Secretary:  Mr.  B.  W   Young.  Savoy  „ote,.   London 

p  .    -„t.  -Downin^g  ftre^'s"^^'  ^'""^^^  °^  ^^^^  ^epart- 
Prue  Cargoes  Release  Committee'^ 

Secretary:   Mr.   H.C.   Honey.-  7   Whitehall    Gardens. 
Prize  Claims  Committee.  ' 

Secretary:   .Mr    L    K    f    n    i 
Temple.  FC       '      '  ■•  <^ol(l..mith   Building 

Prize  ^(Qve^ea)    Disposal    Committee     (Xovember    „. 

Secretary:  Mr    C    r^    r     -r 
Office:  S.W.i.  ■   ^^"">'^«n.  C.N.G..   Colonial 

Procurator  (General's  \dvi«nr,-  c 

Secretary:  Mr    A   D   S  '  i:   S"'"'"'"ee.  ^ 
Production.  Comniiltee  on    '''•  '"^^"^>-  ^-^^-l- 

p|S^of^eJ:S^-«'^-^'-Vard.S.Wl. 

^S^l'"^^  f '^  ^-  ^-«-  ^^-  M.P..  War  Office. 

"^San^^U'^n^r'-ittee.. 

Dublin.-         •  -^^  -'■   "^^'>-   ^1   St.    Stephen's  Green, 
Purchases  Department   ' 

Wt^y!S;:^T«7<  August.  1.14.^..^ 

S.W.I'.        ^      ^-  ^-  ^^^'"'"Per,  35  Parliament  Street. 

Railway  E.xecutiye  Committee  (Ireland^   ■■ 
Secretary:  Mr.  J.  Ing,,^.,i,,£"^^)^^^^^^ 


APPENDIX 


289 


.^O!*. 


;ii(». 


.•ill. 

lUJ. 


;5i:f. 

;ji4. 


31  r>. 

317. 
318. 

319. 

320. 
321. 
322. 
32.-!. 
324. 

32.5. 
320. 

327. 
32S. 


"^ailwaymen.  Release  of.  for  .Military  Service  Committee.  ' 

Secretary:    .Mr.   C.   J.    Salmon.   :',   Harcourt   Huildines 
Temple.  K.C.4.  ^ 

r^ationinp;  Con.sultative  Committee.  ' 

Grosvenor  House.  W. I. 
Ravitaillement.    Sec  C(jmmission  Internationale  de. 
Raw  Materials,  Finance  branch  of  the  War  Office.  ^ 
Reconstruction  Committee.  ■ 

Secretary:  Mr.  \'.  Nash,  C.X'.O..  C.H..  (;.\  Dean's  Yard 
S.VV.l. 
Reconstruction  Ministry   ( .Adnsory  Council).-" 
Recruiting  (Parliamentary)  (  .jmmittee  (.August.  1914)    * 

Clerk:  Mr.   R.    H.    Davie>.  C.I!..    12   Downing  Street. 

Registry  of  Business  .\ames  Committee.  -'  • 

Coleraine  House.  Coleraine  Street.  Dublin. 
Relief  of  Distress  Committee  (.August  4.  1914).  ' 

Secretary:  Mr.   A.   V.   Symoiids,  C.B.,   Local  Govern- 
ment Board.  S.W.I. 
London  (.August.  1914).  ' 

Secretary:  Mr.  .\.  X.  C.  Shellev.  Local  Clovt.  Board 
S.W.I. 
Women's  Lmployment  (.August  20.  1914).  ' 

Secretary:   Miss   Marv   R.    Macarihur,   s   Grosvenor 
Place.  S.W.I. 
Professional  Cla.s.ses  (October  21.  1!»14).  ' 

Secretary  :  Mr.  J.  R.  Talbot.  Board  of  Education.  S.W. 
U'oan  Housing.  ■* 
Agricultural  Districts.  - 
Intelligence  .Advisory  Committee. " 
London  Intelligence  Committee.  " 
Reserved  Occupations  Committee.  ' 

Secretaries:   Mr.   C.   W.    K.   MacMullan.    Mr.   Duncan 
Todd.  St.  Krminy,  Westminster.  S.W.I. 
Retail  Trade  and  Enlistment.  ' 

Secretary:  M.  H.  Whitelegge.  Ilonie  Office. 
Retrenchment  Committee  "  (July.  \'.n:>.    The  final,  fourth 
report  issued  in  Feljruary.  19 It!,  and  the  Committee 
di.sbanded).  * 
Chairman:  The  Chanc^'lnr  of  the  E.vchequer. 
Road  Locomotives  and  '   ;av\-  .Motor  Cars.  Committee  on. 

(Local  Government  i^oard).  ' 
Road  Stiiie  Control  Committee.  • 

Secretary:  .Mr.  J.  I',.  Harvey,  :!.-.  Cromwell  Road,  S.VV.7. 


290 
329. 
330. 


APPENDIX 


i 


331 


33: 


333. 
334. 
335. 


330 

337. 

33S. 

3;i(i. 

340. 
341. 

342. 
343. 
344. 
345. 


^"'wuP'    '''''"    "^"""'^^^^    °f    ^"q-'-y'     (April. 
"""^^^J^^V^  ^----   (January  10.  and 
Secretary:  Mr.  J.   K.   Grebby.   3  Queen  Anne's  Gate 

Sc«,i*  Shale  Indn^H^fcii.^r:"'""-  """""'"^'^  ' 

'TSw  "'■  "■  •'■  ■'"'■""''"'■  '■'  ^'-  '■""'"  "-. 

''"v'^WcnmS  f;  "''■'""■'<=■  ••-  Vtaoria  STee,.  S  «' 
.  ,^/,-  -mercantile  Marine,  etc    No   -^'il  •  -^v. 

^^rmr,.    iU.    A.    R.    I)„„ca„,    „    \j„„Ha    Stre«. 

^Inp  (Neutral)  Detention  Committee  -" 

"r"\^'""^"-^«-^^-"^"''-.lAbbev(iar- 

''''?r.J;:!.'^':'^''"'''''"^  ^"^'-'-^  ^--ittee  (March 
Secretary:  Mr    K-  H.  S.  Marker.  7  Whitehall  Gardens. 

ccrttar\  :  .Mr.   f.  Anderson,  .St.   lames'  Pirl    <  \v  i 
SI  U.pmjr  ( International )  Committee    "  '^^   '• 

Secretary:  .Mr.  R.  A.  Wiseman.  St.  lames'  P-.rk-   S  W  , 
Shippiii},' .Ministry.  '  .-i.  james    I  ,irk,  .S.\\  j. 

Secretary:  Mr.'j.  Anderson.  St,   fames'  ['-.rk    ^  W  , 
Slyp  and  Cargoes  Committee  (Ma"  1     lui'li  ^'     •^^•'■ 
l'orei,i;n  Otticc,  S.W.  c.ui,  i.u  ,j. 


APPENDIX 


291 


340. 
;j47. 


348. 


:i40. 


;{50. 


■'351. 

;i5-'. 


354. 


;{55. 


.•!5(;. 

35  7. 


3511. 


300. 


Shops  Committee.  ' 

Soldiers  and  Sailors  ( Disabled)   Emplovment  for  (1014- 
lOlfi).* 
Secretary:  H.  J.  Comyns.  Local  Government  Board. 
Soldiers  and  Sailors  (Disabled)   Employment  on  British 
Railways  Committee.  ■' 
Secretary:  Mr.  J.   P.  Scott  Main,  47  \'ictoria  Street, 
S.W.I. 
Soldiers  and   Sailors    (Di.sabled)    Trade   .Advisory   Com- 
mittee.   Sec  Labor  Ministry. 
Soldiers  and  Sailors,  Employment  on  Land  tor.  Commit- 
tee.   Sec  Land. 
Soldiers    Dependents  .Appeals  .Assessment  Co.nniitt.e.  ' 
Secretary:   Mr.  J.  J.   R.   Bridge,    i4l>   Cromwell    Road, 
S.W.T. 
Soldiers'  Liabilities  Committee  (Mar,  lOK! )." 
War  Office,  S.W. 

Cf.  Military  Service   ( Civil  Liabilities )   Department, 
No.  237. 
South  Wales  Mines  Committee  (November,  lintl).* 

Board  of  Trade.  S.W. 
Spirits  and  Wine.  Delivery  of,  from  Bond.  - 
Standard  Uniform  for  Mercantile  Marine  Committee.  ^ 
Secretary:   Mr.    ].   B.   Harrold,   7   Whitehall   (iardens, 
S.W.I. 
Sugar     Supplies     Royal     Commission      (Sep^mber     11, 
1!I14).  '* 
Secretary:    Mr.    C,    S.     Rev.c'istle.    Scotland    House, 
S.W.I. 
Sulphate  of  .Amniunia  Distrilnuion  Committee.  ^ 

Secretaries:  Mr.  j.  .S.  Bowles,  Mr.  V.  C.  L.  Spever.  7l' 
X'ictoria  Street,  S.W.I. 
Sulphur.  Sicilian,  Ldinmittee  on  N>,pplies  of.  - 
Sul])huric  .\cid  and  Fertilizer  Trades  Committee.  ' 

Secretary:      .Mr.      .M.      P.      .\pplcby,      Storev's     (late, 
S.W.  f. 
Summer  Time  Committee"  (September  i".t,  I'.tK',  ).'^ 
Secretaries:  .Mr.    I".  H.  Dayics  and   Mr.  .M.  II.  White- 
legge,  Home  Oflice,  Whitehall,  S.\V. 
Tea,  .Advisory  Committee.  ' 

Secretary:  Mr.  R.  .\l>;ton.  (imsvenor  House,  W.l. 
Tea  Control  Co  nmittee.  ' 

Secretary:  Mr.  C.  E.  Town,  (irosyeiior  Horse,  W.l. 


rt 
I. 


;■  ,t- 


IP: 


292  APPENDIX 

:301.    Textile  Industries  Committee'"'  (April  28,  191G)   (Board 

of  Trade).  "* 
Secretary :  Mr.  T.  M.  Ainscough,  fl  Whitehall  Gardens, 

S.W.  ' 
3(32.    Timber    (Home    Grown)    Committee''    (November    24, 

v.nr>).''* 

Secretary :   Mr.   H.   G.   Richardson,   4   The   Sanctuary, 
Westminster,  S.W. 
3C;J.    Timber  Supplies  Department.  ^ 

Controller:  Mr.  J.  B.  Ball.  Caxton  Hou.se,  Tothill  Street, 
S.W.I. 
;i04.    Tin  and  Tun},'sten  Research  Board  (Department  of  Scien- 
tific and  Industrial  Research).  ' 
;5Gr>.    Tobacco  (and  Matches)  Control  Board.'-'' 

Secretary:   Mr.   H.    Footman,   1   Great   George   Street, 
S.W.I. 
:!Oti.    Tobacco  (Import  Licenses)  Commute j.  " 

Secretary:  Mr.  H.  J.  Phillips.  22  Carlisle  Place.  S.W.I. 
Cf.  Import  Restrictions  Department.  Xo.  1«4. 
otiT.    Tonnage  Priority  Committee.  * 

Secretary :  Mr.  H.  A.  deMontmorencv.  St.  James'  Park. 

s.wm'. 

Trade  Advisory  Committees.    Sec  Labor  Ministry. 
Trade  between  British  Empire  and  Belgium.    Sec  Belgian. 
3G8.    Trade  Relations  After  the  War  Committee''   (Board  of 

Trade).  '" 
3(i'c>.    Trading  with  the  Enemy  .Advisory  Committee  (February 
!).  I'JIO).' 
Secretary :  Mr.  W.  P.  Bowyer,  38-3!)  Parliament  Street, 
S.W.l. 
371).    Treaties  with  Enemy  Countries  Revision  Committee. " 
Secretary:  Mr.  C.  S.  Nicoll,  Foreign  Office,  S.W.L 
37L    Trench  Warfare  Chemical  .Advisory  Commi'tee.  ' 

Secretary:  Dr.  C.  R.  Young,  King  Charles  Street,  White- 
hall. S.W.L 

372.  Trench  Warfare  Commercial  Advisory  Committee. " 

Secretary:    Mr.    J.    L.     lefferv.    King    Charles    Street. 
Whitehall.  S.W.L 

373.  Trench  Warfare  Mines  Committee.  ' 

Secretary:    Mr.    I'".,    C.   Jetifeivs,    King   Charles    Street. 
Whitehall,  S.W.L 

374.  Trench  Warfare  Researcli  Advisory  Panel.  " 

King  Charles  Street,  Whitehall,  S.W.L 


APPENDIX 


293 


.",75.    Trench    Warfare    Supply    Department,    Chemical     Sec- 
tion. ^ 
Tungsten,  Tin  and,  Research  Board.    Sec  Tin. 
370.    Vitreous  Conpounds,  and  Cements  for  Lenses  and  Prisms, 
Committee  for  Research  on   ( Department  of  Scien- 
tific and  Industrial  Research).  ' 
.'?77.    War  Charities  Committee.  ^■'* 

;i7.s.    War  Charities  (Control)  Committee  (April  12.  1910.  Re- 
port issued  June  IS),  1!)10).'* 
Secretary:  Mr.  J.  A.  Johnston,  Home  Office,  S.W.I. 
War  Contingents,  Dominions.    Sec  Dominions. 

379.  War  E.xpansion  of  Public  Departments  Committee.  ^ 

Secretary:  Mr.  G.  H.  S.  Pinsent.  Treasury,  S.W.I. 

380.  War  (History  of)  Committee  (August  -'7,  191+).' 

Secretary: "Major  E.  Y.  Daniel,  2  Whitehall  Gardens, 
S.W.I. 

381.  War  Loans  for  the  Small  Investor  Committee   (Decem- 

ber. 191.-)).* 
The  Treasury,  S.W. 
War  Office  Demobilization  Committee.     See  Demobiliza- 
tion. 

382.  War  Office  E.xpenditure  Committee  (January.  191tV).^* 

■etary:  Mr.  G.  VV.  Lainbert.  War  Office,  S.W.I. 

383.  Wci.    Output  National  Advisory  Committee    (March   19, 

191.-)).^'* 
Secretary;  Mr.  W.   M.   Mosses,   0  Whitehall  Gardens, 
S.W.l'. 
381.    War    Refugees   Committee    (Belgian   Commission?    Jan- 
uary, 191.5).  ' 
Secretary:  Mr.   A.  Maudslav,  General  Buildings,  Ald- 
\vvch,'W.C.2. 
385.    War  Refugees   (Ireland)  Committee  (October,  1914?). '' 
Secretary:  Mr.  T.  J.  Fallon,  t'.j  Upper  Mount  Street. 
Dublin. 
3S(;.    War  Risks  .Advisory  Committee  ( .\ugust,  1914).  * 

Secretary:    Mr.'].    W.    Verdier,    Board    of    Trade, 

S.W.  ■ 

;:87.    War  Risks  Insurance  Office.  ' 

Secretary:   Mr.   J.   W.    X'erdier.    33-30    King  William 
Street'.  K.C.4. 

Cf.  Insurance  of  British  Ships"  Cargoes.  Xo.  193. 
388.    War  Savings  (Irish)  Committee'  (July.  1915).'* 
Secretary:  Mr.  J.  Lrennan.  Dublin  Castle. 


294 

380. 


APPENDIX 


IK 


} 
'n- 


r  I 

t 


3D0 

3!)]. 

3!»L>. 

393. 
394. 

395. 

396. 
397. 

398. 

399. 
400. 


401. 


■    ^^lecmalT  (fj' T " r/  "^T"^''''  ^^'"^'^^^y'  lO^C).- 
WE.C4.  ""'"'■■^'  ^-^'"'^"'■>-  Square,   Fleet 

War  Savings  (Scotti.sh)  Committee  (May    V)U)   ^- 

H<.u..e.  S.W.  •    '  '-^  •°-    Wmchester 

War  Trade  Departmem  (February  S')   1915)   3.« 

Secretary-:  Sir  N.  J.  Highmore.K.c'.B..  4  Central  BmM 
>ngs.  Westminster.  S.W  1  --entrai  Build- 

U'ar  Trade  Intelligence  Department.  ' 

w!.  T  ^^  'c''^'"*^'-  ^'-  J^'"^'''  Park.  S.W. 
\\ar  Trade  Statistical  Department  ' 
Secretary:  Mr.  R.  E.  Harwood.  22  Queen  Anne's  Gate. 

\V'ar  Trophies  Distribution  Committee  ' 

Secretary:  Mr.  H.  C.      .rrott.  War  Office.  Whitehall. 

'''"LniatSffi^cT)'"'"'  ^"""'•"^^  ^'^"^-^-  ^«^^)  (Co- 
Wheat  Executive  ^ 

'^SScio^a^^g^!  '  ^'^°"-  ^-^^'^-  H-- 
'''''mi.:ee.'°"'    '"'    ''"^^    International    Joint    Com- 

Secretary:  Mr.  H.  D.  X'igor.  Board  of  Ag-iculture,  etc., 
Wheat  (Indian).    5rr  Indian. 

WaT'Mr''rn^T'"'"^'°."  ^Q'^*^'^^'-  ''-  ^»^«)-'^ 
Too  Place   SWl  ""■  '^'^"°'''  '"'■^'^^•-  "--'  ^^ater- 
Uomen^^in^  Munition    Work    Committee-   (November. 
Secretary:  Mr.  A.  B.  Cane.  Canada  House.  Kingsway. 

■'Tf"Dis'tr"st'"""'  ""'"'"'  ^•-'"'■"^^•=    ^^c  Relief 
Women's  Employment.  Central  Cum-  .ittee   for  Leinster 
Munster  and  Comiaught  (November.  1914)^  ' 

'^dS;  ''''■  "•  ^•^•^^"-   '■''  ^--^  Bagit  Street. 


f 


APPEXDIX 


295 


402. 

40  ;i. 

404. 

405. 
40G. 
407. 

408. 
409. 


Women's  Employment,  Central  Committee  for  Ulster  (Oc- 
tober, 11)14).  • 
Secretary:   .Mrs.    Mercier  Clements    (Hon.),    ',   College 
Gardens,  Ik'lfast. 

Women's  Eunployment  Committee  (  Ministry  of  Recon- 
struction). ' 

Women's  War  Employment   (Industrial)    (Central  Com- 
mittee) (March  _',  1!)10).  '* 
Secretary:  Miss  G.  Jebb.   MontaLni   House.   Whitehall, 
S.W.I. 

Woods  and  Stones  ( Import  Licenses )  Committee.  - 

Secretary:  Mr.  H.  j.  Phillips.  I'l'  Carlisle  Place.  S.W.I. 
Cf.  Import  Restrictions  Department.  Xo.  I'^i. 

Wool  and  Worsted  Industries,  Provisional  Committee  on 
Research  lor  the  (Department  of  Scientific  and  In- 
dustrial Research).  ' 

Wool    Purchase   Central    .Advisory    Committee    (.August, 
1111  <;).■■'■* 
Secretary:  Mr.  E.  M.  H.  Llovd,  War  Office,  Whitehall. 
S.W.I. 

Woolen  and  Worsted  Indu.stries  Board  of  Control.  - 

Work  of  National  Importance  Committee.  6\y'  Conscien- 
tious Objector-. 

Zinc  and  Copper  Research  and  Inquiry  Committee  (  De- 
partment of  Scientific  and  Industrial  Research).  ' 


^  U.  S.  Commerce  Reports,  .March  6,  1918.  \'o.  54.  pp.  854-862. 
'  I'rom   list  printed   in  Journal  of  Commerce  and  Commercial  Bulletin, 
November  16.  1917,  and  in  the  Xatiou's  Business.  -Xnvembcr.  1917. 


•  From  Hst  in  I'orliamentarx  I'afers.  1917,  C\i.  8741 
•From  list  in   l.iberat  )\-ar' Booh.  1017,  pp.   148-165, 


pp. 
"  These  committees  have  ceased  to  exist. 
"  \otcd  in   I'll,-  War  Cabinet:  Retort  f.<r  the  )'ear  I'.'n. 
'  The  work  of  thc^e  ci>mmittees  lias  beeri  taken  over. 
■  I'rom  hM  \n  Firliamentary  I'apers.  1915.  L'd,  7855,  an.l  not  in  (ither  lists. 
I  lie  wcrk  of  ihese  committees  has  been  ccnnpleted  or  terminated 
'"  The  wirk  _of  these  c.immittees  lias  lieen  mer^;ed  with  other  committee^. 
Ill  view  of  the  appuintment  of  the   hood  Controller,  it   is  not  e.xpected 
that  this  committee  will  meet  a^rain. 


1 


INDEX 


Ac  land,    I'rancis    Dyke.    55.    56.    200. 

Atris     oi      Parliament— Jt't-      Parliamentary 

ifKi^Iation. 
A'itlisun,    i)r.    Christopher,    53.    55,    56.    115, 

Admiralty:  officials.  54,  56;  rcgulatiims  con- 
cernitiB.  22,  23,  60.  61,  62.  07.  i^i;  dc- 
partniciitnl  orders  of,  27,  ug;  early  his- 
to  V,  5Q-6j;  committees,  69,  100,  11-,  178, 
179;  authority  over :  munitions,  98.  1  ij, 
air  service,  117.  118,  censorship,  133, 
134.  pensions,  161,  i6j,  army  transport 
service.  iH^,  1 86,  shipping,  190,  191.  Hee 
nl^o   N'aval  administration. 

Admiralty  Honrd:  durinu  Pitt's  recimc.  13; 
early  history  of,  60-6 j  :  members  and 
functions  of,  6j-6>;  departments  and 
ser\ices,  65.  66;  new  aRencies,  66  69; 
channel  in  personnel.  71-74. 

Admiralty  Court:  durinR  Klizahethan  era, 
^ ;    d'.'cision    of,    in   7.aniora  case,    23. 

Admiralty,  Lord?  of  the,  4,  13.  33,  34.  37, 
44.   40,    .';4.    56,   61-66,   71-74.    "34.   190. 

Admiralty  Transport  .Arbitration  Board,  66- 
68.    1S6 

Aerial   Navipntion   Acts.  27.   in. 

After  the  war  committees,  19J,  194.  J40, 
J41.    242. 

ARricuItiiral  administration:  first  measiircs, 
198;  departmental  orders,  ug,  131.  21 1, 
2\2\  regulations  concerning,  147.  -^06; 
committees  and  nther  aRcncies.  110,  131, 
183.  J00-204.  209-211,  259,  262,  268; 
critici'im,    208. 

Affricultnral    machinery,    10?;,    1 10.     1 14. 

ARrtcultural  I'olicy  Committee.  203.  262. 

Agriculture  and  Fibherics.  Board  of,  34, 
56,   131.    157.    108.  201,  202,  206,  209. 

ARriculture,  Board  of,  51,  54,  91,  iy8,  200, 
204,    209. 

Aiding  the  enemy  regulations,  22,   i.?3. 

Air  Board:  establishment  of,  29,  42.  117; 
reoreari/aticjn.    ii8.   criticism   of,    119. 

Air    Ministry.    1 18,    t  iq. 

Air  raid  precautions,    117,    128,   132,   178. 

Air  ser\  ice:  nrtiiiaN,  55.  ^j ,  63.  72;  rela- 
tions with  Ministry  nf  Munition^.  lot;, 
114.  1 18.  \M}\  administration  at  bcRin- 
ning  of  war.  i  in;  commit  tees.  117.  118, 
178,  2;^$.  See  also  Air  Board;  Air  Min- 
i'-trv. 

Aircraft:     provi'^ions     concerning,     26,     27, 

121.  124;  responsiSilily  f-ir  design  of,  63; 
increase  in  number  of,  7s;  Koyal  fac- 
tory, 80,  98;  supply  of.  105,  114,  117, 
118.    iiy;    iii'-iir.iiKe  committees,    178. 

Airships.      See    Aircraft. 

Aliens:  early  regulatiims,  11,  13;  acts  and 
irders    during    present     war.     17,     jn,     24. 

1 22,  124.  125:  restrictions  on.  12.-,  1 24, 
144;  legi^tration.  13,  124;  internment, 
125.    151;    exemptions,     \2f,    tommiltees, 

00,      I  2.S,      144.      247.     2b2. 

Aliens    Restrietinn    ^^:\,   jo,   24,    122,    124. 
Aliietl    coMlereiu  rij2.    237.    2,^i<. 

Allied   lA-cinuniie  Conference,    192,   193. 
Allied  Naval  Council,   238. 

297 


.Allied   War   Council,  48.   96. 

Ammunition — sec   Munitions. 

Anglo-French    loan,    22;.    226. 

Animal  products;  regulation-.,  129,  197; 
committees,   184,    192,   21J.   212-217. 

Animals:  regulations,  5.  13.  2U,  i-(„  131; 
commitices,    201,    202.    2iii-2i7,    jh^. 

Arms — sec   Alunitioris. 

Army  administration;  early  re-TuIations.  7. 
9.  12.  76.  77,  82;  Army  Coniictl,  7S-82; 
early  history.  82.  K3;  volunteer  system, 
83-86;  compulsory  .service.  86-88;  Army 
Service  Cnrps,  88-90;  War  Office  cemmit- 
tees,  90-92;  graves  registration.  92-91; 
central  administration,  93-97.  See  uUj 
Var    Office. 

Army  Council:  powers,  2.",  162;  establish- 
ment, 78,  93;  officers  and  their  func- 
tions. 78-82:  orders  of,  128,  129;  wool 
regulations   of.    184. 

Army    .Service   Corps.  88-90. 

Army   Transport   Service,  89. 

Asquith.  Rt.  Hon.  Herbert  H..  31,  33,  34. 
39.  4^,  44.  45.  48,  5n,  53.  8t.  86.  168, 
2S^-     -'57. 

.Xsquith    Cabinet— rrf    Liberal    Cabinet. 

Australia:  trade  regulations  of,  23:  repre 
sentation  in  Cabinet.  46,  47;  prize  courts 
in,  70;  purchase  of  woul  from,  184; 
finances,    230. 

Austria-Hungary:  subjects  of  arrested,  125: 
prohibition  of  trade  with,  171 ;  banks 
owne<l  by  subjects  of,  173;  report  on 
trading   conditions,    178. 

Balfour,   Arthur  J.,   34.  44.  53.   54.   72.   23B. 
Balkans,   the:   graves  registration   in,  92. 
Bank  holidays,  24.   12  r,  218. 
Bank    notes — see   Currency   legislation. 
Bank   of    Kngland.    to,    12.    219.    220.   225. 
Banks:      former     war     provisions,      10,      12; 

transactions  with  and  by  aliens,  125,  173; 

British   Trade   Bank.    193.    ;94.     See  als'j 

I'inancial   administration. 
Barnes.     Ceo.     .\.,     49.     :.3,     55.     ,58,     160. 

162.     i6\. 
Beatty.   Sir   David.   72. 
Beef — see   Animal   products. 
Beer:    regulations  concerning.    21.    r3,-<.    140. 

2oy,    statistics,    141,    142. 
Belgian   refugees:    regi-^tration  of,    124.    149, 

1 5'  ;    agencies    for   aiding,    149,    1 50,    151, 

247-   ■^48.  supplies  for,    1^1. 
Belgium:    registration      f   graves   in.   92.    01; 

trade    with.     i')4.    239;    refugees    from- 

see    Belgian    refugees. 
Bills  of  exchaiige.    121,   218,  220,  221. 
Blockade   Min;vtry.    -q,    31,    2,\<;.    240. 
Blue    Books,^  Committee    on    Colonial,    242. 
Board     of     Trade:     early     historv,     14.     1(55 ; 

personnel.  54.  =;'>.   if>^:  orders'of.  j6.   iy8. 

1  30,    2(15  ;   departments.    :  i,    166.    i  78.    182, 

»9Si    250;    powers   and    functions,    s.j,    .,ii, 

1 72,     176,     1  ^  S;     liv-tnses     i-siied     bv.     1 72, 

173 ;     insnrai  :e     scheme,      177 :      criticism, 

iSh;    powers    transferred    to    Ministry    of 

Labor.    250,   251;   trade  conferences.   249; 


29S 


INDEX 


.\ 


ill 


|(  -i  . ) 

'if 

'ii- 


ommitt.fs,  <)o,  100,  loi,  130,  154,  166 
in.  i7'.  i;»,  179,  181,  183,  igs,  JO,; 
-'04 ;    ri.-constuction    committers,    igi-igb, 

Hi'ii;rir,r(lmrnt:  insurance  for  damage  from, 

I|.r.l.n,    Sir    Kohert     46.    47. 
nrtjii-  ,,v    iiind    ."'ministration. 

I.TM-t',      \  ISCOlinr.      !,■(.      .'40 

llia.;.i;isHT.    l.,iril.     .'j.    ?,  ■  57 
HuiMmu   materials:    >  .strirtiuns  on   import! 
■        176;    a.mniilt.-<-    ,.11    supplies   of,    rto. 
Huiliiing  trades  committees,    no,    iSs,   ijo 

-no. 

I  aliinet.  during  iSth  century.  7.  14-  re- 
lations  l.etween  Parliament  and,  lo"  re- 
organization under  I.lnv.l  Ceorge.  .'o' 
liberal  Cabinet  ,1-34;  (oalitinn  Cabinet! 
J4:36.  Lloyd  fleorge  \\„r  C.ibinet  anj 
•Ministry,  3H.4f,;  Imperial  Cabinet,  46.48- 
criticism,   4S-C;-.;    personnel.    53-58. 

i  allies:   censorship   of,    1^3,    1^4 

Canada:  representation  'in  Imperial  Con- 
ference aod  tahinet.  46.  47:  pn.e  courtl 
!A'o     ''''  c""'r"l.    -'07:    finances. 

Canals:    government    control    of,     127.     130, 

Canteens:  army,   91:   industrial,    log,    140 
Tarson,    ,s,r    Kdward.    34.    37.    ■^o,    53.    54, 

Jecil,    Lord    Robert,    c;,.    1-5.   ^40. 

Censorship:  regulations  at  outbreak  of  war 

1. 13 ;    administration    of   bureau    for  114' 

criticism.    135;   journals  suppressed,  i\V- 

postal,     136,     1 5,-.  •■    ' 

t'^k     '^"""■"'     ""•"''l     for     the     Liquor 

(  hambtrlain,    .uisten,    34,    50,    S3.    54,    158. 

Chamberlain.    Xeville.   55.   2'.-^     '^4 
(.hanties:    legislation,    21,    V4'4.""nr      ict. 
committees,     ,44.     ,46-149,     ,,4.=  mgini- 

rtt'fiees.  "'     "''^     '°'     '**'«*»" 

Charities    Kegistration    Act,    144.    155. 
(iclM-..    Hospital.    n8.    ,61.    ,0.       " 
(heir,,cal    prn.lucts,    ,79,    ,So.    ..50. 
(  heniical    Trades,    Committee   on,    .-sn,    i68 
ll.i.dren:     employment     of,     ,,..;     pensioni 

.id    allowances    to,     , ,.,.     ,,,3;    education 

01.    ..43.    ..44,     .41, 

l-T    1',"','     ^^'""'""'     M.     37,     50,     53.     54. 

''m,'.?.'  ■■'"''  ^""imcrcial  Employments  Com- 
mitl.e.    ,44     ,,4.  J47_  J4, 

Loa  an-l  crke:  early  regulations.  7:  leg. 
islat.on  and  departmental  orders.  .8, 
I  o.  iH-:  committees.  143.  ,44,  ,s„,  ,8^.' 
administrative  ageiuies.  ,81.  !■<••  .nfter 
the    «ar   committees.    ,o>.    .-e,.    ..68. 

CoalitL.M  (abmet:  I,.nn.iti„n.  ,,;  .esults 
ii:  cnticsm.  36,  38 .  personnel.  ^4  53 
s8:    chances    in,    7..  •"'    'J 

(like— jec    Coal    and    coke. 

Colonial  CWiee-  pe-s„„nel.  ,4.  ^-  -,.,. 
report   of.    ,78:   committees.  ■_4o  '4 '.    "".6,' 


^  ""1^  ■  8^ '-     ITT-   P  ' '  '  ■ '  79 ;      domestic, 
the  ''    ^"™y-    trading    with 

'^"fl',.'".'"';s",.    '"'"""'•"""'•^     dAchal,     Jc, 

^'Z:/fZ    tor^y^""""''     ''"     ''•'■■•"'""- 
^"^1];]"'™=    .ind    committees,    list    of    of- 

Compuisor'y    military    service:    early    provi- 

ti      ;8'''86''«'''    '''■    '^'■••>'u■•es^e'ad,ng 
to.     ,18,     86,     87;     exemptions.    87.     ,  .« 
criticism,    88:    cmmittees.    8«.',4,       u'g is^ 
lation,    ,,.    ..,,    87,    88.    ..40     .,;  '^ 

Conferences   of   the    .\llics~ -^cc    .Vllied    con- 
ferences. ' 

Cnnsci.^ntious    objectors,    88.    144     jjg 

Constables     .7.    ,3,.    ,,^.  ''■'•    "'■"'• 

(onlr.-.band      .J,    70,    ,76,    ..4,,, 

lorn  — tec    Food    supplies. 

Cotton    Control     Roard.     184. 

ronon    gr.nving.    committees    on.     1,4.     ,,5, 

Courts,    emergency    powers    ,if      ,.      ,8      ,„ 
r  ■'"■,    -■'■    ,'.-'.    -'-".    22:.  '        ■      ^' 

Cowdray      \  iscnint.    55.     ,,8. 
C.rawford.     Karl    of.    53.    54.     .„..,    _, 
Crewe.    Lord,    34.    53,    ,4.     ,4s  ^ 

Currency  legislation:  early  regulations.  ,„ 
'2.  bank  notes  issue  authorired  1-' 
-'lo:   acts,    w,    ,7.  20,   ..4,    ,,9:   slatistit;; 


40,      51. 


,vl. 


1  '7. 


2IQ. 
Curjon.      Lord,       j' 

177.    i8,s 
Customs      and      excise      duties:      provisions 

regulating.    8.    jo.    ;,.    2,      ,m      17    ■      n 

crease    ,n.    ..8:    agencies''  183  '   A^" '  s"! 

nepartmeitl    ""■       ''"    """    "'"    Trade 

Customs    and    inland    revenue    regulations, 

-3.     24.     12J.     172. 
Cyiirus:    prize   courts    in.    24.    70. 


isions 


con- 


;6i::    representati 

encf  and   Cabinet,  46, 
Colonies-     ,Secret:irv     for 
■>'••    -t".    .^4.     79.     -M": 
tion.     14:    i.rize    courts    ... 
t:irv    forces    ,,f.    83:    finances 
nmtees.   ..41.   .■4-'.    26^.    Sec  al 
C'mcc. 


Iminrial    C.mfe'r- 

""'.     J4.     37.     44. 

e.irly    adininistra 

7'  :    mil. 


C.i.-nial 


I^ardanelles.    21,    37      7^      -^ 

neclar.ition     of     London',     provi 
cerntng.    22.    ^o 

Pefcnse  of  the  Realm:  preliminary  mea=- 
nres.     ,20.    ,.,,:     Royal    Proclam.atinn    of 

■  Aug.  4.  1014.  121.  i.j;  .Acts  of  p.ir- 
liamcnt.  12,  i.q  ,„  ,,  ,,  '  " 
It.       ,  ,,       ,  ■       ~.  ■  .     - '.       22,       00. 

.:',J""n  r''  .'"'■•''■'^"""s  on  aliens. 
i.'4-irfi:  Orders  m  Council.  22.  24  im 
'.■61..8:  general  orders.  ,20  im'  ."s 
i3>:  sneci.il  constables.  13,  ,,",.'  ,,,"', 
trol  of  lights  and  business 'hours'  11- 
133;      censorship.      133-137;      control      of 

-i."e::s.'",Tv'i.,',',^-^-'^    ""--^   "«"■   -™- 
Pemobilii-ation    Committees,    261     -64 
Vrby,    Karl  of.    53,   5,,   Rg.   „    96   '*,',- 
cvonport.    Lord.    .,5.    205.    207  " 

disabled    m.iit.-irv    forces-,t..c    .Soldiers   anA 
_   sailors,  aid  to.  " 

.)..minion=:      reguLitions     concerning.     21- 

n'T  Odl'n";'"  '"  .  '""•"'••''  <'..„f;.renci; 
^n.l  labinet,  29.  46.  47.  prize  courts  in. 
yo,^    ,1.    hnances,    231:    committees,    240, 

Hruss,    ,28,    ,2.,,    ,30,    ,4,,    ,s„, 

uke,    Ilenry     K.,    54,    58,    ,5,, 
llyestuffs  -  J,-..    Chemical    pro.fucts 


I-Miu 

of 

reniedv 
I  he     fu 


_ion.   lep,.!:„„o,.    ,8.    241.    24f.:    effects 

".ir    nu      .J...    ..43:    measures   ,  iken    to 

btions.    ..43.    244:    plans    f,.r 

-•44,    -4^;    committees.    244, 


INDEX 


VJ'J 


14$.   J58,    i6i:    Board   of,    54,    ur.    244, 

ERypt:    prize   covins    in,    24,    ,-u,    ; .  ;    vTavcs 

reKistraliuii    in.   qj, 
KlfCtions,    rt:g.._.ti(jiis    concirning,     18.    jo 

Klcctrical    trades,     i-jj,    104. 

Klizal.tlli.  (Jutcn  ul  Kngland:  ivar  admin- 
i>lratiun    during    rt-i^n    of.     1. 

KmfiKC-ni:y  lii.'isl.-'tioii.  171./,  uj.  i;, 
.'-■",     J.'.'.    .'4J.    J64. 

Knimott.    Lord.    ij.    175. 

Kmi.loyirunt :  clerical  and  commercial.  144 
154.  J47.  -MS,  prlMmcr^,  91,  ,55,  ,5-. 
returned  military  forces,  loi,  iji,  15- 
i.W.  10".  .'O.i-  agricultural,  joi;  'indut- 
trial— !.■.■  InduMry  and  trades.  iff 
ii/.<L'    lem.Tle    latmr. 

Enemy.  tradiii«  with  the:  regulations  in 
tornier  wars.  8,  11;  acts.  17,  .;.>,  ji. 
'7--  17J.  "7,^.  -'-'i;  iiriiclamatioiis.  j/, 
171:  committees.  174.  175.  i;t,;  punish- 
ment     tor.     17.::    jirosecutions,     i-j      1-1 

tnemy  aliens;  treatment  of.  17.  1..4,  ij,- 
housing  of.  151;  litigation  'concerning' 
T-'.    173;    custody    of    iiro|icrtv    of,    i-i 

^.  174.    J}g. 

hiigincer  and  Railway  .Staff  Lorps.  167 
168. 

'  "15'""^  ?'"'  Wales:  Local  Covernment 
Hoard  for,  130;  liquor  control.  139. 
14-^.  143;  aid  to  returned  soldiers  ami 
sailors,  157,  joi:  enemy  property  cus- 
todian, 1 73.  174;  c'tal  regulations,  iSj- 
textile  industry.  183:  food  administra- 
tion, joo.  joq;  finances,  ji.,.  j.--  ^-ily. 
cation,  i44.  ,.4t,;  labor  regulations!  jsi- 
Local  (joverninelit  I  oinmittee,  jOj.  j66. 
j68. 

Exchequer,  Chancellor  of  the.  34  1-  j. 
=  3.    -18,    j-'i.    jjS.    ..3..,  •'^      ■■'•    ^•'' 

Lxchcqucr  bonds— .t.-c  Financial  adminis- 
tration. 

Expenditures:  statistics.  230.  231;  agencies 
to  reduce,  23^;  committee  on  national, 
-■34-237- 

Exports:  early  provisions.  5,  8,  10  107- 
prohibition  of.  18,  20.  .•3.  j?,  ui,  ,-V 
198;  licenses.  174:  committees,'  175' 
176.    iS--;    assistance   to   exporters,    jjo. 

Eamily  allowances:  in  former  wars,  q,  12- 
irovisions  and  agencies  durinc  i.resent 
war.  84.  148,  147,  15,.  ,5..,  ,,R 
I  ?;9.     It>j.     103- 

I-eni.-ile  labor:  in  munition^.  109.  iio,  113, 
114-  -M'J,  -5":  clerical  and  commerciaV 
144-  154:  substitution  lot  maks,  no, 
144.  1^4,  -47.  --48,  -'49.  -'So:  relief 
.ngeiuie-..  109.  14S;  enrollment  tinder 
.N:itio;al  .Service.  2.s4;  statistics.  113, 
114.  -'49.  -ly-y.  254.  -'55;  reconstruction 
plans.    .'57,    J59. 

linancial  administration:  in  former  wars. 
5,  1-';  enurgeiicy  measures,  17.  18.  jo." 
-1;  regulation  of  private  tiaiisactionsi 
Ji8-2-'_':  \otes  of  credit.  -^j.'-jj4;  war 
loans,  jj^j„'7:  i.ixes  and  re\inue,  _'J7. 
230:  expenrlitures,  230,  --31;  control  over 
lm:ii;ee-.  .31  J34,  Committee  on  National 
I'.xiiviiduure,    .'34-236. 

I  iiiaiicial    oliiigations     iff    .^^oratoria 

lisher.    IlerlHTt    A.    L..    m.    --46- 

JMsher,     Lord.     33.     4<.     fi8.     ;i.     72. 

l-ood  (  oTitroller:  appointment.  42,  20;' 
eritinsm.  51.  5..;  orders  of.  129.  131- 
powers   and    duties,    205,    206. 


food    supplies:    in    previous    wars.    ;,    8.    1,, 
II.    197;    measures    taken    at    oulidtak    of 
«ar,     i9«,     199;    government    contr..l      j 
1,8.    2o5.i„«:    orders.    1,9.    13,.    ,1, •.,,:: 
home    production.     J09;     eonimitl.es      ,,1 
108.    200,   JOI,   J04.   .oX  jio,    JO  . 

Icireign  .AtTairs,  Secretary  l,ir  jj  ,,,  -, 
23;.    238.  ^"''    ■"•       ' 

loreign      Oftice:      personnel.      53       55       sj 

'^li.     ??,*•      -'"'■'''J't'ion.      19,,,      iciat:,;,,; 

with    .\llies,     198.    J37.     jjS,    j,„;     ,|,.,„,r,- 

ments.     130.     195,    jj^;    committees,     ifs 

.239;    expansion,   J38. 

I  i'lestry.  committees   on.    J5,j      .^  ,      .^,i< 

lurms  of  acti.m:  .\cis  of  rar"li;,ment'. '  i-; 
Koyal  Proclamations  and  Orders  in 
Co.jncil,  Ji:  Orders  of  Council,  j^: 
Orders  of  IIis  .\Lajeslv.  jO;  leparl 
mental    orders    and    regulations      - 

1-raiice:  legislation  .luring  wars  with.  6  ii- 
labinet  ot,  41;  armv  depots  m  8.'  ' 
registration  of  graves  in.  oj  of  Muni', 
tions  department  ..f.  i,(,;  aureenu'iit  con- 
cerning scp.arate  |.eace,  J37;  women's 
service   in.    j';4. 

French,  Sir  John,  93,   1 1; 

fjediies.    Sir    Eric,    .,4.    72.    74.   89,    190. 

Oermany:  detention  ,if  ships  of  -.  -,u 
thority  of  Chancellor  of,  41'  "p'ris.m 
eam,,5  in  153;  prohibition  of  tra.le  with 
1,1;  hanks  owned  by  subjects  of.  17S- 
blockade  and  internment  of  vessels  of. 
187;   subjects  of.   arrested.    125 

(■raves  registration,   81.   gj    9, 

(;r-    nw-ich    Hospital.    64.    161.    ,62 

Crey.    .Si.     F.dward.    .^3,    J37, 

IJaldane,    Viscount,    53,    -8     1-9 

I  arcourt.    Lewis    X',.'  ,4,    ,,.    .,^„ 

Utalth.    government    control    of.     109      14- 

Henderson,     .-Xrthur,     40,     42,     49      =,      ,, 
SS.    S7.    246,  '•'•     '■•■ 

{[..bhouse.    C.    E.    H.,    ss.    201. 
Hollaiiii.    1  1.    14.;,    ,.;  , 
Home   .\fTairs,    Secretary   of   State   for 


.14. 
154. 


Home  Ofhce:  personnel.  34.  37.  5,,  ,,.  ,„^. 
orders.  27.  1J9,  ,3,,.  ,3j;  'ionsorship. 
ij4.    136:   committees.    143-us.    is..,    m, 

li.V   r'''';    !;."■","''■    '"•'•   '""ference   with 
Itoard    .if    Trade,    249, 

Hope.    Tames   F,.   56,   5s.    157. 

Hi.using  conditions:  munitions  workers 
90  114:  alien  enemies.  1  =  1;  families  ,.f 
interned  aliens,  151;  committees,  ,,- 
26-.    266. 

tmpei-i.al  Cahinet,    ..0.   30.   41,   44,   4';.    =0 
Imperial  Defense.    Committee    on     44      j  = 
I'lS.  "*■    ■*   ■ 

Imjierial   War   Conference,    jo.   4f,     n-      ^ ,  - 

Imports:    early    ,,tovision<.    8.    ,|',o"ro-^. 

r.^strictions    on,    ,76.    ,77.    ,89.'   ,99.    ..„4: 

-t,o:     licenses,     174.     ,7^.     ,.s,,-     agenci--, 

'70,      177,      189,     JIO. 

Inchape,  Lord,  1S6,  18S  ^00 
Income  tax  -jfe  Taxation  .iii.l  R.-;,-no,- 
India:  early  trade  regulations  ,,,-  r,  n 
resentation  in  Imperial  War  Coiif'eieiie. 
and  (abin.t.  j..,  41..  47:  ,,„„.  ,-,„.,,,,  „, 
71;  ri-presentatioii  on  graves  ciiimilti-e 
92:  arrangements  ..mccrnin,;  wheat.  109' 
finances,   ::}i)^  committees,    199,  24 j    j6j 


300 


INDEX 


Iniii.i.    Secretary    of    State    for,    34,   44,    47, 

Industry  and  trades:  leRulation,  2,,  j, 
loi,  i«4;  Kovernment  control,  loi,  ijo 
'jn.  <f„.  iS...  rSj,  185,  ,q„:  regulation 
01  wanes  and  hours  of  lahor,  100,  no 
H5.  -'w:  settlement  of  disputes.  loi' 
■1;;  supply  and  distribution  of  labor 
■  09,  114.  ..47.  .■.,«;  tor  disaMed  joldiersi 
■sr.  .\=i.  recrmtinii.  .44.  ,81.  ..,6;  re- 
lations between  emidoyer  and  employe 
loi,  14.1  --61,  j8i;  relief  aRCncies,  log! 
i48;  industrial  supplies,  179.  181 
193.  260:  committees.  lotj,  143,  15 
^40.    2^n.    jst- 

legislation.      17,      iR.     20,      157, 

military    forces,    iS,    157;    in'. 

'df:    ships,     177;    aircraft '  and 


■  8.1. 


3<). 


3'. 
relief 

.-60 : 
ISO. 

62. 


■57. 


i3fi: 

1Q-, 


128; 


185,     igj. 
Insurance: 

dnstrial.     .„„ 

bombardmert.    178:    life    and    endowment 

-•jo;    committees,    177.    173 
Inlclliiience:    naval    and    military,    44 

insurance,     178:     commercial.     17a 

I'jo;    overseas   trade,    195.    ig6,    -mo 

mittees.    147.    1,,..,    ,-j( 
Internment:       enemv      aliens.        u; 

civilians,    144:    (;,.rn,.T„    vessels  ~Vs- 
Invention   and    Research,    I!oard   of,    68,   69, 

Ireland:  munitions  administration,  io8- 
aBncultur.ll  orders,  131;  no  liquor  areas! 
130:  employment  of  women,  148-  Bel- 
B.ian  refugees.  i.;o;  rebellion,  IS4-  pen- 
sions, ISO:  railway  administration,  170- 
enemy  property  custodian.  171  i-j-' 
peat  deposits,  ,8-  food  a.Iministration. 
-00.  Jul.  joq:  finances,  jig,  22--  labor 
reBulations.  ..,;.  Se,  alio  Irish  com- 
nntfcft, 

Irish  committees,  143,  ,48,  ,,0.  10,  ,50, 
IS;.    200.     ,ni.    jog,    jio,    ju,    jV;, 

Irish    Nationalists,    34     ^■r 

Italy,    .M7,    ,38.  *     ^'^ 


.Tellicoe.    Sir    Inhn. 


7'.    72.    73,    74. 


Kinc    William's    War:    administration    dur- 

ing,    7, 
Kitchener.      Earl.      26. 
04.    <)6.    97,    loj,    1J5. 


3>. 


34.      53,      9J. 


Labor,    Ministry   of:   establishment,    jg    42 

^i.  250:  personnel.  5,,  57;  departmenta, 
ifi3,.  .;si:  powers  and  duties,  ji;o,  icr- 
statistics.  ,.,,;  criticism,  ..,.;  finances; 
235,  23":  committees,  157,  -3=  ,,, 
Labor  problems:  lecislation.  loi.  i^q-' ad- 
ministrative aaencies,  iii;,  ,47,  i4S,'i5i 
166.   24S,  252:  committees.   i,«)i   14,'   ,57' 

'<''<  i^^?;  ii^:  :ii  ;;"•  =""  *^'  ^^^ 

I^ncaster,    Chancellor    of    the     Duchy    of, 

I.ansdoune,    Lord.    14     C3 

Law,    nonar,    32.    34. '30, '50,    53. 
240.    241.  .<       J   •    :jj. 

Leather— ire    .\nimal    products 

Lewis.   J^  H,.rbert.    56.    244. 

Liberal    rabmet  :     -,t    ootbrrak    of 
rel.ntions    with    Parliament.    32 
ration    of.    33;    personnel    of,    ^yc!^ 

l.ieh.tmg  requlations.    ,,0     131      ,ij' 

Liquor  traffic:  Central' Control  Board  ^8 
'W.  Itr.  130.  140.  141.  143;  regulationi 
and  orders.  iS.  20.  13,.  1,-.  ,,8.  , ,,. 
-'-■.-!'•'■  restrier.oiis  conceriiiiiB.  1,7.1,,, • 
administration  of  orders,  ,4,;  statistics' 
141.    142;    criticism.    142.    143.  ' 


54.    158. 


31; 
reorgani- 


54. 
21S, 
120, 


]■>'■■'■   »oc\i~.<er    .\nimals. 

Lloyd  George,  Havid.  24,  29,  30,  34.  3 
40.    42.   48,    S3,   q6,    100.    IIS.    l:S 

Loans— jce  War  loans. 

Local    Government     Board:    personnel 
34'     54.     50:     orders.     120.      no- 
measures,    ,46,    ,4,.    ,^„     ,5,,    ,' 
262,    268;    industrial    aid,    isi      15- 
act     152;   finances.  222;   committees. 
.    '^1.    157.    266269. 

I'ord'HL  ";•.,•'''•    ?•••    '">■    "" 
Lord    H  »t    .^''""■•al.    4,     ,j,     50,    60. 
Lord    High   Treasurer,    3,   4,    13. 

McKenna,  Reginald,  34,  ,3  ,,8  ,,8  ,,, 
Maclay  Sir  Joseph  Pa?on'  55  , go  ,,,'"• 
Malay   States.   248.    .63  ' 

Medical    Research   Committee.   92.    ,09. 
Medical    service:    navy.    63.    66;    army,    -g 
81.    too.    ,j,,    js,,    J, 5.  '•    '"• 

Merchant  ships-r«   Ships  and  shipping. 
Metals  and   minerals,  8,    ,0,    106.    iio,   fl-g, 

.130.      180.      102,      264. 

rn^7     ""''      "'*'^'     »"PPl""-      provision, 
concerning.    4.    ,0.    23.    ,„.,,    ,J     ,^^ 

Mibtary  service  acts.  19.  21.  87.  8S.  240. 
Milner.    Lord.    40.    so.    S3.    200 

"''"■'18"'^''"'"'"*    '"''     '"''"'"t    of.     I.I. 
Montagu,    Rt.    Hon.    Edwin    »i      1-     s, 
,,.s''.    IIS.    117,    227,    233.   2S7' 
Mor,itona:    8,     10,     ,7.     20,     22.     12. 

2ig,    220. 
^'"'"r    transnort,    89,    90.     114.     124, 

Munitions  adminisiration:  organiration  in 
n,  ,'„2  '"'Ji  O'l^iili'ti-ative  orBani/.ati,i„. 
102-108  additional  commit. ees.  108. i,„ 
bnancial  arrangements.  11 11 13:  muni- 
tinn,  industry.  Ii,,-,is:  general  estim;'.,' 
i'5.    116.     See   also   Munitions.    .Ministr.v 

Munitions,  Ministry  of:  establishment  iS 
J".  3S.  53.  94.  100.  lis;  personnel.  ,i 
3.7.  100.  lis;  development.  51.  102;  criti- 
cism, g-:  powers  and  duties,  100102 
los:  -nartments  and  officers,  lo'-io-' 
""T  ;"   'l""  'V    '"15.    107:    munitions 

.ireas.       n:    financial   arrangements,    in- 
gener.-!    estimate.     116;    orders    of,     120] 

Munitions:  former  provisions  concerning 
S.  10;  emergency  acts.  18,  20,  21  75 
■on,  101;  manufacture  of.  at  outbreak 
ot  war,  g8:  plans  for  increasing  out- 
put, gg:  development  of  the  indiistrv 
"3''i5;   committees.    108.    log,    112,   211 

N'ational   registration:   acts,    iS 
committees.    Rs,    02,    266 

.National    Service.    Ministry    of 
SS.    ::t^.    236.    2S3-2sg. 

Naturalisation    leBislation.    122      i^s 

Naval     administration:     prewar    history      S 

0.  12,  13.  S2-62:  Admiraltv  Board.  62V16' 

new  agencies.   66-6g:  prize  courts.   6g--i- 

central    administration.    71-74.      Sc-e    alsi 

.  .Admiralty. 

Navigation    legislation.    12S.    i  ^g 

Navv  Board,  earlv  history  of    13 

Neutrals:    trade    with.    21      '.6  '  ' 

1S8. 
New    Ministries    Acts.     18.    43,     1 

New    Zealand:    trade    reaulalions.    23-    rep- 
resentation   at    Imperial    Conference    and 


37.    S=; 
4-.     SI. 


sg-fii. 

M*;.  176. 

205. 


INDEX 


.•301 


Cabinet.    46,    47;     prize    courts    in,     71 ; 

titiancrs,    j.}u. 
Newfoundland.    46.    4;.    71. 
Nivi«.pap*.r'>:   (lurinK   I'ltt's   rcsrime,    11:   d.ir- 

ins     i'rc:?fnt     war.      i  -'s .     tcnsurship     of, 

Nichutsun,   Lord,   45,   93. 


Urdtrs  and  regulations,  departmental:  Post- 
ni;i>itr  (jineral,  j;;  Home  Urfice.  J7, 
1  -'J.  I ji),  132;  Treasury,  .-7,  ug.  130; 
Admiralty,  j;,  ijy;  Hoard  ul  Trade, 
I  ^K.  i.iu.  ^QS :  Army  lOuncil.  1  jH.  ijg; 
I-ood  (.'(HUroIler.  131;  Secretary  for  Ire- 
land, i.ii ;  Secretary  for  Scotland,  ug, 
131;  yuartermasttr  General,  ug;  Muni- 
tt"ns    Alini^try.    12S,    ug,    130. 

Orders  in  Council  and  Royal  Proclama- 
tiuns:  in  former  wars,  4,  7,  gii;  several 
types.    ^J.14;    flow    issued,    J5, 

Orilers    i<i    Council,    25. 

Orders    uf    Hi-;    Majesty.    26. 

Overseas  Trade  IntelliRence  Department, 
195-196,   J39- 


i'ai)er:    regulations    conccrnins:,     130,     176, 

ii<g.    I'j^;    Commission.    176. 
Parliamentary   legislation:    in    former   times, 

3.    7-'-';    durinn   present    war.    i^-'i;    tin;in- 

cial  measures,   17;  t-nuTKency  acts,    17.   iS; 

military    service    and    new    aKencit-^,     i^. 

ig:     relations     between      Parliament     and 

the    Cabinet,    ig;    list    of    important    acts. 

20.     J I ;     Defense    of    the     Realm     Acts. 

122,      WJ. 

Patents,     trademarks,     copyrights,     igj,     193. 

Pease.   Joseph    A..    54.    S5.    -;46. 

Pcnsi<)ns:  early  provisions,  4:  lefrislation, 
18.  2n,  21.  84.  Te;8.  160.  ifii,  164;  ad- 
ministration at  begin ning  nf  war.  157. 
I  s8 ;  new  measures,  i  58,  1 59 :  financial 
provisions. ,  160;  Statutory  Committee. 
l.'8-i6o.  itij;  Ministry  vl,  jy,  4J,  i^tj 
160-164. 

Pitt's   war    legislation,    q. 

Police    control.     17,    20,     t zo,    122,     i  tj. 

Port  and  Transit  Committee,  1 30!  1 88, 
I")  I. 

Ports  and  harbors:  regulations,  123,  130, 
187,  iSH;  harbor  department  of  Board 
of  Trade,  166;  committees,  ijo,  1S8, 
igi. 

I'ostal    regulations,    1 .,    136,    137. 

Press :  censorship,  133 ;  official  bureau, 
I33-I3f- 

Prime  Minister,  4,  13,  29,  37.  44,  5^, 
'36.     138.    205. 

TVince    of    Wales,    g;?,    148.    i6n. 

Prisoners  of  war:  treatment  of  and  aid  to 
Uritish.  <,n.  gi.  155,  ,56;  enployment 
of.    gi,    tt;7;    committees,    is;:;,    156. 

Private     transactions,     regulation     of,     218- 


Privy  Cninril:  in  fnrmer  war-..  3-6.  i_j, 
14.     I  -.     ^g;    during    present    war,     15. 

I'ri.  -  claims  committees,    6g.    i;q.    jfjji'    ,^, 

Prize  coiirte:  rectilatinns.  <;,  20.  22.  2i, 
in  the  Cnited  Kini;dom.  6g.  70;  in  domin- 
ions and  dependencies.  70.  7, ;  depart- 
ment.   j»o. 

Profits.  vov.Tnment  control  of.  10 1,  102, 
log.  J07,  joH. 

Prnthcr.i,    Rowland    P..    54.    ^,^u. 

Public  Trustee  for  enemy  property  173 
174.    -'-'9- 


-?34- 


"3.    -'o 


Railway  and   Canal   Commission,    irift 
Railway     Kxecutivc     Committee,     106.     16S. 

186. 
Railways:      prewar     provisions,      166,      16H; 

Order    in    Couiicil    for    government    cn- 

trul    -if,    J4.    166.    if,8;    ..rficiaN.    Hg.    it.S; 

regulation    of   traffic    and    fares.    13...    jd;. 

170.    181;   advantages  of   government   cn- 

trol,     i6g,     170;     financial     arranjiemeiit-. 

i6g.    170,    changes   in    service,    i;u;    ci'iti 

mittees,    160.    ifi8.    186. 
Realm,  defense  of  the — jtv    Defense   of   the 

realm. 
Reconstruction:    committees    on.    igj,    20^, 

rog,    245.    2sr.    JSo-.'67;    Ministry    of      -o 

257-.'^) 
Recruiting    measures:    early    provisions.    8. 

g:    at    beginning    of    war,    84:    indiistri.il. 

**5i.    86,     248,     254-256;     committee-.     >'4. 

^5.  00:    transfer   to   Ministry   uf   National 

Service.    2ii,    256. 
Relief     organizations — sec     Charities;      j/,  . 

Soldiers  and  sailors,  aid  t.i. 
Rent   and   mnrtgajfe   interest;    restriction   of. 

18,   21,   222. 
Retrenchment    Committee.    232,    231. 
Uevcnue— wv    TaxatK.n    and    revenue. 
Khondda.    Lord.    ^4.    5;,    207. 
Ruherts<m,    J.    M.,    56.    203. 
Robertson,     Sir     W'm.,    g^. 
Royal    Klying    Corps.    116, 
Roya!    Naval    Air    Service,    117. 
Royal     Proclamations:     extent    of.     21-     sev- 
eral   types    of.    22-23;    h..w    issu,_d.    24. 
F^iincimaii,   Walter,    54,    r8(.. 
Russia,    237,    ^38. 

St.    AMwyn.    Lord,    218,    221. 

Samuel.     Herbert,    53.     54,     55, 

„  -^34.    23s. 

Scientific  and  Tidu.-trial  Research.  Depart 
ment  of;  established.  ig4:  boards  and 
committees    of.    igs,    244,    245. 

Scoilaml:  Defense  of  Realm'  orders  con- 
cerning, 120,  131.  132;  liquor  control, 
13').  140.  14J,  143;  enemy  property  cus- 
todian, 173.  174;  food  administration, 
^no,  201,  2og;  finances.  12,  2iq,  2 '-  ■ 
Secretary  for.  54.  Sec  also  ScotVisli 
committees. 

Scottish  committees,  143,  jou.  201,  22- 
-?4  7.    548. 

Secretary  of  State:  Principal.  4.  13,  116. 
l^S.    !7i. 

Securities.  72S,  130,  137.  ^...o:  American 
dnilar,    227. 

Sclborne.    Lord,    34.    54.   200.   203. 

Seven  >  ears  War:  admini^. ration  dur- 
ing. 8. 

Shipping    Controller.    2g,    42.    52,    igo,    igi. 

Shipping  Ministry:  creation  ui.  .y.  usg, 
'•fficials  and  functions.  i8g,  igo;  results 
nccomplished  by  and  criticism  of,   i^r. 

Ships  and  shipping:  earlv  regulation-,  m. 
56:  detent  ion  .<t  flerm.Tn,  2.'.  1S7 ;  in 
surance.  130:  oflicers  responsible  for  6\ 
74.  7f:  neutral  ships,  1,6;  administrri" 
ti.m  durinK  first  year.  18S-187:  commit 
tees.  187-189.  igo;  Shipping  Ministrv. 
iSg-ig2. 

Shops,     regulations     fur     earlv 
I3t,     I  U-. 

Simon.    Sir     John    .\..    34,    37 

.Smith.    F.    K..    134.    143. 

.Sniiits,    (ieneral.     47.     50,     irR. 

Soldiers    and     sailors:    aid    to, 
14S,    I57-I5-).    -■^",    ^4-'.    -"51  ; 


US,     147. 


closini- 
53.    55, 


4.    11.     14-. 

em[)!oym(nt 


ao2 


INDEX 


.  iuiM.;^;;,.^'^"^'  "«•  ■'-  ^^y.  -. 

S...ith    Africa,    46.    :,,     .,0 

''X''':V:ZT"''   "■""-"•    -58.    .59. 
.'McelMaitUnd.    Arthur    I).,    =,      ,,,      ,„, 

Sl"ck    cxcluinsf    rcKulai,o„s,     ,-      ,,0      ,,, 

^r;  ,^:".;r- ■- '-'^^  -  vi^ 


Taxation     ami     rev  „,rlv     „       ■ 

J.    5.    I.,    ..-.    ,.  "  f       P^v.smn,, 

t.on,    ...,-.    ,,8;    ,:^„-,;,;  tx"":-V  '^'^s" 

st^U"""  ,:'t'  '"•  ^'"-  ^-^-  -': 

Teachers    .tpJ   Icichinff  —  t  - .    ri 
:iVx,,l.   ,n,fu,trl.s^"',8l     V.    ^;,  ",""""• 
r..nlK.r^^an.i    alcoh,.,.    „,.,^„„,;-     „„,^„, 

''""''-T"ik"'"'''"'°"'    <^"nccrnins,     ..,,..    ,,6. 

Trade     and     comm.-rrr.     carlv     ,..8ulal„„„ 

*a^•  .7?' ,8'^!:'!"'^":"   ''"-^'-"'nV 

■"?:.  with  nriti^h'  ,o;,;c;i,,, '■'.;;',  '•«• 

minions,     ...       ,-„    '      '"^^""'••'  ,  and    do- 

TrLdVu^Lr;'^;7:;^',:-";';-,v'3.''''-'' 
"';^;:^e,r-^^~r^^^.T-i3: 

^-■n    ''r,,-'.-,6-"'Vf,™":'"'T-     '""■     '^0. 
ri:ni.trafion  ""'    '■■''^"'■ial    a<|. 

Tnrk.y:    hanks    .  .  ,„.  .  .^j^^,^.    ^,^     ^_^ 

iriiin.-nt     loan-     of       ■■-        ..a     "      ,'    "* 
«,.!,     ,!n,i.,,     I-nrri>,.n-(Vffi<.c'."!M« '■■'"""' 

''"v:'rn?..,r;',;';r!:;.  ™"--y  p- 

mmittrc.     j^'rt  *       '^■ 

\  f-rdicr,   J.    W.,    ,77,    ,.g 


Verncy.    Sir   Ifarry.    ,6.    aoo. 
VicluaiinK    Board,     i,     6„ 
Xulunlccri,:     Iwfori-     iQi.'d,.    :„ 

^%rnn;;S^-"---"X;^'r,- 

\ot.s  of  credit:  ,n  ,,,4.  ,-  ..^.  ,„ 
")<5,  .w;  in  previous  Var«,;..,t,'a,, 
'"».   JJ*:   Mptndhurcs  from,     j,      .j  , 


acts 
J-'"'; 
-'-'6; 


Vv[u.\     Sm, 


Wages:    government    control    of     ,  ,, 
Wallace,   .-..r   .M,   (;.,,,,.■■"'    "'- 

ham',    \\-ar     t"-,'-     ''"';'"'•'     "^'"K     Wil- 

War,'^:'i;„;.;';;rie::^a^:r".'"7 
,     nnnistrat  ve  agencies   in    ,«.  .    ^-     ^''' 

War    Cabinet:     creah^n'o  "      ;'"  Q-'-p;; 

;;"''cn,ii-;ni'of'^^-^''"'r"'"'^-'"'. 

War  l,.,ns:    ,n    former    wars,    ,,      ,  .. 
roncerning,     ,8,    20.     j,       .,,    '  , ./ ' 

:l",1  ?■'■""•"'•'■    '"'■    -^nieriVan,  V-,' 
Mat  stics,    J..6;    coinmiltee-      ■■- 

r^nin""'    '^"""'"-'''ins    for    inquiry    con 

c.rning     ,,,,.    staintics,    ,,,,       '  ""' 

W.ir   .Ministry :      forma.mn,      j.-;      criticisn 

'men^^VanTf^rr'to^'lJ''  ^^    ■''"art- 

^08.,.  committees.  u.,v', r?or:';';- 
"r^ani^,i,;;^^-,'^r':^,i;:;s:"^""''"-'' 

;!=;.  ■?:.-,/-„-,::;. 

'f-;,      60     17,;    mining.    ,8,.    duti.s    ,r      "' 
f"red     from      ,8.,,     ,«j,     ^hi  ',„e      isk 
.."I    control,     1^8.     „„.     f,J^;j-     '''''■ 

,,.-.'"■    -Vt,    J.t?,    J, 6. 

,,'■"■  !i!*i"cs    certificates      .,- 

^\.ir   Tri.le     Department      "cr'ea'ion 

.    '->•    functions   of.    ,,-;.    ,^f,'    .. 

i"g.    «!'    '  *""•     "''"'■ni>tr-.tV. 

Wemvss.    SiV    R,,.sK.„    Krskine.    -, 

"  n  -,„,  "n"    ^""•i","'""    rommittee.    .•., 
lam    II      ^ar   ,„lmTni«trat:,.n    .,f     -    ^ 
'  "I's    and    spirits.    8,    0,    i  1      lu- 
Women      officials:      munitions,       i',.-        ,„,. 

c;;^;;;;cs,"v.,-;,-'- '[ ■■  o^, 

"■'■•I.    •>,    or.     ,..,,,     ,,,.     ,8j,..,c, 


-■-.t. 


diir- 


iian/ihar:    prize   courts   in,    24,    70. 


<«♦*'-'<.   ■- ;  :^»»ir/4,v 


"'_■■  1  iv'".-' :"-!•  ■-''■•^wa«Tj^«M^ 


